This Fiscal Years (FYs) 2026 â 2029 Transportation Improvement Program was developed by the Johnson City MTPO, in cooperation with:
U.S. Department of Transportation
Federal Highway Administration
Federal Transit Administration
Tennessee Department of Transportation
An electronic copy of this document can be found on our website at https://jcmpo.org/tip.html.
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
1.1 About the Johnson City MTPO
1.2 Metropolitan Planning Area
2.5 National Goals of the Federal-Aid Highway Program
3.1 Coordination and Consultation Process
3.4 Public Transportation Program of Projects
3.5 Annual Listing of Obligated Projects
4.4 Ongoing Maintenance and Operations Cost
5 TIP Amendment and Modification Procedures
5.3 Administrative Modifications
6 Status of Projects in FYs 2023-2026 TIP
7 Projects to Carryover from FYs 2023-2026 TIP to FYs 2026-2029 TIP
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 the MTP
10 Individual Project Sheets for the FYs 2026 â 2029 TIP
Section A: Surface Transportation Block Grant Program â Local Allocation to MPO Projects (STBG-L)
2022-01 Downtown Johnson City Crosswalk Safety Project
2022-02 Signalization 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
2023-17 Old Gray Station Road Section 2 at SR 75 and Traffic Signal
2026-07 Boones Creek Road Roundabout
Section B: Surface Transportation Block Grant Program â State Projects (STBG-S)
2006-01 Knob Creek Road Extension â Section 1
2090565 Surface Transportation System Preservation and Operation Urban Grouping
Section C: Highway Safety Improvement Program (HSIP)
2090595 Safety â Urban Grouping
Section D: National Highway Performance Program (NHPP)
2090560 National Highway System Preservation and Operation Urban Grouping
Section E: Transit Projects (FTA)
2026-01 JCT Transit Operating â Sec. 5307
2026-02 JCT Transit Capital â Sec. 5307
2026-03 JCT Transit Capital â Sec. 5310
2026-04 JCT Transit Capital â Sections 5307 & 5339
2026-05 NET Trans Operating Expenses
2026-06 NET Trans Capital Purchases
Section F: Transportation Alternatives
2023-19 Historic Covered Bridge Structural Rehabilitation
2023-18 ITS Fiber Optic Expansion
2026-09 Tennessee Air Quality Improvement Grouping
Section H: 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 Urban Grouping 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:
I. 23 U.S.C. 134 and 135, 49 U.S.C. 5303 and this subpart;
II. 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;
IV. 49 U.S.C. 5332, prohibiting discrimination on the basis of race, color, creed, national origin, sex, or age in employment or business opportunity;
V. Section 11101 (e) of the Infrastructure Investment and Jobs Act (IIJA) (also known as the âBipartisan Infrastructure Lawâ) (Pub. L 117-58) and 49 CFR part 26 regarding the involvement of disadvantaged business enterprises in USDOT-funded projects;
VI. 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;
IX. Section 324 of Title 23 U.S.C. regarding the prohibition of discrimination based on gender; and
X. 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: ________________________
Cathy Ball
Chair, Johnson City MTPO Executive Board
Signature: _________________________________ Date: _________________________
Matt Meservy
Director, TDOT Planning Division
Adoption Resolution
A RESOLUTION OF THE EXECUTIVE BOARD OF THE JOHNSON CITY METROPOLITAN TRANSPORTATION PLANNING ORGANIZATION (MTPO)
To Approve and Adopt the Federal Fiscal Years 2026 â 2029 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 âBipartisan Infrastructure Lawâ) 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 MTPOâs 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 Federal funds can be obligated or expended 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 Federal Fiscal Years 2026 â 2029 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
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
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
ITS Intelligent Transportation System
JCT Johnson City Transit System
MAINT Maintenance
MAP-21 Moving Ahead for Progress in the 21st 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
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)
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 â Local Allocation to MPO
STBG-S Surface Transportation Block Grant Program â State
STIP State Transportation Improvement Program
TAP Transportation Alternatives Program
TERM Transit Economic Requirements Model
TDOT Tennessee Department of Transportation
TIP Transportation Improvement Program
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 â Infrastructure Investment and Jobs Act (IIJA), also known as the Bipartisan Infrastructure Law (BIL);
· Previous Surface Transportation Reauthorization Act â Fixing Americaâs Surface Transportation (FAST) Act;
· Metropolitan Transportation Planning â Title 23 of the United States Code (U.S.C.), Section 134;
· Formula Grant Program for Metropolitan Planning â Title 49 of the U.S.C., Section 5303;
· Metropolitan Transportation Planning and Programming â Title 23 of the Code of Federal Regulations (CFR), Section 450; and
· Metropolitan Transportation Planning and Programming âTitle 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 new boundary was adopted by the Johnson City MTPO Executive Board on August 7, 2025 and approved by the Governor of the State of Tennessee on August 27, 2025.
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 1
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, TDOTâs Three-Year Work Program, TDOTâs Ten-Year Plan, TDOTâs 25-Year Long-Range Transportation Policy Plan, the Strategic Highway Safety Plan (SHSP) for Tennessee, the Eastern Federal Lands Highway Division TIP, and the Johnson City Unified Planning Work Program.
2.1 Planning Horizon
All projects in the TIP are derived from the Johnson City MTPO 2050 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 are consistent with the MTP. The 2050 MTP was adopted on December 13, 2022. 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, 2025 to September 30, 2029. The previous TIP covered the FFYs period of October 1, 2022 to September 30, 2026 and was adopted on December 13, 2022. The next TIP will cover the FFYs period of October 1, 2028 to September 30, 2032, and the development cycle will begin in early 2028.
2.2 Project Selection
Projects within this TIP were prioritized and selected using the same criteria as the previous TIP, as shown below in Table 1. All projects are consistent with the 2050 MTP. Staff consulted with local jurisdictions and TDOT to determine the status of projects to be carried forward. Staff also reviewed available funding and the capacity of the local governments to provide the required match to the federal funds for projects. All project sponsors agreed to continue to implement their current projects.
Table 1
| TIP Project Selection Criteria | ||
| Regional Goal | Criteria | Points |
| Safety and Security | Projects located on facilities with known safety issues for all users | 30 points |
| Traffic Congestion Mitigation | Projects located on routes with existing capacity issues | 20 points |
| Sustainable Growth and Livability | Projects that minimize future maintenance needs and do not impact natural or cultural resources, or disadvantage residents | 40 points |
| Regional Access | Projects that provide access to projected population and employment growth in the region | 10 points |
| Maximum of 100 points | ||
2.3 Project Phases
The TIP is just one part of a projectâs journey through the planning and approval process. One project can have many phases â 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 below lists the types of project phases found in the TIP and a brief description.
Table 2
| Types of Project Phases | ||
| Project Phase | Acronym | Description |
| Acquisition/Purchase | ACQ | Procuring equipment, software, or vehicles |
| Capital | CAP | Capital Expenditures, including capitalized preventive maintenance on revenue vehicles |
| Construction | CONST | Work by the agency or contractor(s) to construct the project, possibly including utility relocation |
| Maintenance | MAINT | Activities to maintain the transportation/transit system |
| Operations | OP | Operating the transportation system such as incurring costs related to the day-to-day operations or maintenance of transit vehicle systems, traffic signal systems, or intelligent transportation systems |
| Preliminary Engineering – NEPA | PE-N | Includes activities from the inception of the project, fulfilling the requirements of the National Environmental Policy Act (NEPA) of 1969 and all applicable legislation, regulations, executive orders, and directives, up to the approval of the environmental document |
| Preliminary Engineering – Design | PE-D | Preliminary engineering design work, in which general project location and design concepts are determined |
| Right-of-Way | ROW | Work from the distribution of ROW plans up to advertising for bids or commencement of work by the Agency, dealing with real property acquisition, temporary and permanent easements, and utility relocation |
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.
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 â To achieve a significant reduction in traffic fatalities and serious injuries on all public roads.
(2) Infrastructure condition â To maintain the highway infrastructure asset system in a state of good repair.
(3) Congestion reduction â To achieve a significant reduction in congestion on the National Highway System.
(4) System reliability â To improve the efficiency of the surface transportation system.
(5) Freight movement and economic vitality â 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 â To enhance the performance of the transportation system while protecting and enhancing the natural environment.
(7) Reduced project delivery delays â 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
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 âConsultation Processâ 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 MTPOâs MTP and TIP. 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 on the next page.
3.2 Title VI
As with all processes and projects in the Johnson City MTPO, Title VI is 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, âNo 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.â
All projects using federal highway trust funds for the Johnson City MTPO comply with Title VI. 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 2025, in both English and Spanish languages. The TIP document can also be translated into another language, upon request.
Table 3
| Transportation Improvement Program (TIP) Checklist | |
| Activity | Technique(s) |
| Draft Document | Available online atwww.jcmpo.org and at the Johnson City MTPO office. |
| Comment Opportunities | Public Meetings and Workshops;Electronic Surveys or Comment Forms;Posts on social media;During standard public meetings, such as Executive Board/Staff meetings; andIn person or by mail to the Johnson City MTPO Office |
| Public Notice & Comment Period | 14 Calendar Days, beginning with public notice in a regional newspaper and on the Johnson City MTPO website at www.jcmpo.org, and on social media. http://www.jcmpo.org/ |
| Public Meeting Notice | Published a minimum of seven (7) calendar days prior to the public meeting in the Johnson City Press, on the website and on social media. |
| Amendment Notice | Amendments to the TIP will follow the same public review process and procedures as that of TIP adoption. |
| Summary of comments received | A public comment summary will be made available to members of the Executive Board prior to the meeting for the TIP adoption/amendment. Written and verbal comments are summarized and incorporated into the final document. If significant changes are made after addressing the comments, additional opportunity for public comment will be provided. |
| Final, adopted document availability | The final, adopted TIP document will be available on the Johnson City MTPO website and at the administrative office. |
3.3 ADA and Transition Plans
As part of FHWAâs 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 on the next page describes the status of the ADA Transition Plans that are required for cities and counties with 50 or more employees.
Table 4
| Status of ADA Transition Plans | ||||
| Jurisdiction with 50 or more employees | ADA Coordinator Identified | ADA Grievance Procedures Developed & Published | Self-Evaluation Completed | ADA Transition PlanCompleted |
| City of Elizabethton, TN | ✔ | ✔ | ✔ | ✔ |
| City of Johnson City, TN | ✔ | ✔ | ✔ | ✔ |
| Town of Jonesborough, TN | ✔ | ✔ | ✔ | ✔ |
| Carter County, TN | ✔ | ✔ | ✔ | ✔ |
| Sullivan County, TN | ✔ | ✔ | ✔ | ✔ |
| Washington County, TN | ✔ | ✔ | ✔ | ✔ |
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 agenciesâ Program of Projects (POP). Johnson City MTPOâs 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: âPublic 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.â
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 âProjects & Infoâ 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 H 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 âfiscally constrained.â
4.2 Revenue Sources
The annual allocation of Surface Transportation Block Grant Program â Local Allocation to MPO funds (STBG-L) for the Johnson City Urbanized Area is estimated at $1,902,680 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 fuel 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 Governorâs allocation of Section 5307 funds and discretionary grant funding in other programs, such as Section 5310 and 5339.
4.3 Cost Estimation
The TIP is required to be fiscally constrained. 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. In consultation with the TDOT Planning Division, the following inflation rates will be applied to projects programmed into their
respective fiscal year:
âĒ FY 2026: 5.5%
âĒ FY 2027: 4.5%
âĒ FY 2028: 3.5%
âĒ FY 2029: 3.5%
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 below 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, the same inflation rate for FFY 2026 as stated above will be used to estimate the budget and is shown in the Financial Summary of Highway Funds on page 79. In the event Federal transportation funds were made available for maintenance and operations projects, it would be identified in the TIP.
Table 5
| Highway Maintenance and Operations Budgets â FFY 2026 | ||
| Jurisdiction | Estimated Annual Revenues | Estimated Annual Costs |
| Town of Bluff City, TN | $320,723.00 | $320,723.00 |
| City of Elizabethton, TN | $2,618,726.00 | $2,618,726.00 |
| City of Johnson City, TN | $17,996,900.00 | $17,996,900.00 |
| Town of Jonesborough, TN | $988,721.00 | $988,721.00 |
| Town of Unicoi, TN | $155,064.00 | $155,064.00 |
| Town of Watauga, TN | $13,567.00 | $13,567.00 |
| Carter County, TN* | $2,242,145.00 | $2,242,145.00 |
| Sullivan County, TN* | $271,461.00 | $271,461.00 |
| Unicoi County, TN* | $27,138.00 | $27,138.00 |
| Washington County, TN* | $20,634,215.00 | $20,634,215.00 |
| TDOT | $2,824,534.00 | $2,824,534.00 |
| Total Annual Budget | $48,093,194.00 | $48,093,194.00 |
*These figures include county-wide costs.
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
| Public Transportation Maintenance and Operations Budgets | ||
| Revenue Source | Estimated Annual Revenues | Estimated Annual Costs |
| Operating Assistance – FTA 5307(Federal & Non-Federal Match) | $4,033,395 | $4,033,395 |
| Operating Assistance – Other FTA Programs (FTA 5310, Discretionary, etc.)(Federal & Non-Federal Match) | $375,000 | $375,000 |
| TDOT State Operating Assistance Program (UROP) (State & Local Match) | $728,700 | $728,700 |
| TDOT Critical Trips (CRIT) Program(State & Local Match) | $88,074 | $88,074 |
| Total Annual Budget | $5,225,169 | $5,225,169 |
4.5 Funding Programs
Over the years, new transportation authorizations have eliminated, consolidated, or created transportation funding programs. The current transportation authorization, the IIJA (BIL), is a five-year authorization enacted on November 15, 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. Also of note is the expiration of the IIJA (BIL) on September 30, 2026, and funding programs may be added or removed in the new reauthorization act. Also, the funding ratio is shown 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. The next authorization act may also remove or add programs.
Table 7
| Federal Transportation Funding Programs | |||
| IIJA (BIL)Federal Programs | Description | Funding Ratio | |
| Federal Highway Administration – Formula Programs | |||
| Bridge Formula Program (BFP) | Provides formula funds replace, rehabilitate, preserve, protect, and construct highway bridges. | 80% Federal,20% Non-Federal | |
| Carbon Reduction Program (CRP) | Provides formula funds for projects designed to reduce transportation emissions, defined as carbon dioxide (CO2) emissions from on-road highway sources. Requires State, in consultation with MPOs, to develop (and update at least every 4 years) a carbon reduction strategy and submit it to DOT for approval. DOT must certify that a Stateâs strategy meets the statutory requirements. | 80%-100% Federal,0%-20% Non-Federal | |
| Emergency Relief Program (ER) | Provides funding for emergency repairs and permanent repairs on Federal-aid highways and roads, and roads on Federal Lands. | 80%-100% Federal,0%-20% Non-Federal | |
| Federal Lands Transportation Programs (FLTP) (FLAP) | Provides funding for roads providing access to and within Federal and Indian lands. Eligible applicants include only state, county, tribal, or city government agencies that own or maintain the transportation facility. | 80%-100% Federal,0%-20% Non-Federal FLAP is 100% Federal | |
| Highway Infrastructure Program (HIP) | Provides formula funds to replace, rehabilitate, preserve, protect, and construct highway bridges. | 80%-90% Federal,0%-10% Non-Federal | |
| National Highway Freight Program (NHFP) | Provides funding for projects to improve the efficient movement of freight on the National Highway Freight Network (NHFN) and support several goals. Projects must be included in a national and state strategic plan for improvements to highway freight transportation. | 80-90% Federal,10-20% Non-Federal | |
| National Highway Performance Program (NHPP) | Provides funding to provide support for the condition and performance of the National Highway System (NHS); to provide support for the construction of new facilities on the NHS; 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; and to provide support for activities to increase the resiliency of the NHS to mitigate the cost of damages from sea level rise, extreme weather events, flooding, wildfires, or other natural disasters. | 80-90% Federal,10-20% Non-Federal | |
| Promoting Resilient Operations for Transformative, Efficient, and Cost-saving Transportation (PROTECT) â Formula to States | Provides funding for evacuation routes, coastal resilience, making existing infrastructure more resilient, or efforts to move infrastructure to nearby locations not continuously impacted by extreme weather and natural disasters. Higher Federal share if the State develops a resilience improvement plan and incorporates it into its long-range transportation plan. | Planning Grants 100% Federal;Resiliency Grants 80% Federal, 20% Non-Federal | |
| Surface Transportation Block Grant Program(STBG-L)(STBG-S) | Provides funding for roads functionally classified as rural major collector and above. Funds may be utilized on projects in Rural Areas, Urban Clusters & Urbanized Areas. Other activities include Transportation Alternatives, Safety, and Rail-Highway Crossings. See Section 120(c) of Title 23, U.S.C. which lists certain safety projects that are eligible for 100% Federal share.https://uscode.house.gov/view.xhtml?req=granuleid:USC-prelim-title23-section120&num=0&edition=prelim | 80-100% Federal,0-20% Non-Federal | |
| Surface Transportation Block Grant Program (STBG-L) â Local Allocation to MPO | Provides funding to urban areas of 50,000 to 200,000 in population for improvements on routes functionally classified urban collectors or higher. The State is to establish a process to consult with relevant metropolitan planning organizations and describe how funds will be allocated equitably. | 80-100% Federal,0-20% Non-Federal | |
| Transportation Alternatives (TAP) | This program is a set-aside in the STBG for activities such as pedestrian and bicycle facilities, recreational trails, safe routes to school projects, historic preservation, environmental mitigation, etc. | 80-90% Federal,10-20% Non-Federal | |
| Recreational Trails Program (RTP) | Provides funding for the creation, rehabilitation and maintenance of multi-use recreational trails. However, governor can opt-out to the set-aside from TA funds for this program. | 80% Federal,20% Non-Federal | |
| Federal Transportation Funding Programs | ||
| IIJA (BIL)Federal Programs | Description | Funding Ratio |
| Federal Transit Administration Programs | ||
| Urbanized Area Formula Grant (Section 5307) | Section 5307 is a formula grant program for urbanized areas providing capital, operating, and planning assistance for mass transportation. Other eligible activities include job access and reverse commute projects. Operators must maintain equipment & facilities according to the Transit Asset Management Plan. | Capital â80% Federal,20% Non-FederalOperating â 50% Federal, 50% Non-Federal |
| Enhanced Mobility of Seniors and Individuals with Disabilities (Section 5310) | Section 5310 is a formula grant program for urbanized areas that provides funding for operating and capital expenses of state/local governments, non-profit groups, and operators of public transportation providing service to elderly persons or persons with disabilities. | Capital â80% Federal,20% Non-FederalOperating â 50% Federal, 50% Non-Federal |
| Formula Grant for Rural Areas (Section 5311) | Section 5311 is a formula grant program provided to states to support public transportation in rural areas of less than 50,000 in population. Funding is available for capital, planning, and operating assistance. | Capital â80% Federal,20% Non-FederalOperating â 50% Federal, 50% Non-Federal |
| Bus and Bus Facilities (Section 5339) | Section 5339 is a formula grant program that provides funding to replace, rehabilitate, and purchase buses and related equipment and to construct bus-related facilities including technological changes or innovations to modify low- or no-emission vehicles or facilities. | 80% Federal,20% Non-Federal |
| Federal Discretionary (Competitive) Grant Programs | ||
| IIJA (BIL)Federal Programs | Description | Funding Ratio |
| Federal Highway Administration Programs | ||
| Bridge Investment Program (BIP) | Project to replace, rehabilitate, preserve or protect one or more bridges on the National Bridge Inventory or to replace or rehabilitate culverts to improve flood control and improve habitat connectivity for aquatic species. | 80% Federal,20% Non-Federal |
| Infrastructure for Rebuilding America (INFRA) Grants | Establishes the Nationally Significant Freight and Highway Projects (NSFHP) program, which provides competitive grants or credit assistance to nationally and regionally significant multimodal freight and highway projects that align with the program goals. | 60% INFRA, 20% other Federal, 20-40% non-federal |
| Better Utilizing Investments to Leverage Development (BUILD) Grant Program (formerly RAISE/TIGER Grant) | Projects with a significant local or regional impact that improve transportation infrastructure. | 80% Federal,20% Non-Federal |
| National Infrastructure Project Assistance Program (âMega-projectsâ) | Provide funding through single-year or multiyear grant agreements for eligible surface transportation projects that cost $100 million or more. | |
| Promoting Resilient Operations for Transformative, Efficient, and Cost-saving Transportation (PROTECT) â Discretionary Grants | Provides funding for evacuation routes, coastal resilience, making existing infrastructure more resilient, or efforts to move infrastructure to nearby locations not continuously impacted by extreme weather and natural disasters. Higher Federal share if the eligible entity develops a resilience improvement plan (or is in a State or area served by MPO that does) and the State or MPO incorporates it into its long-range transportation plan. | Planning Grants 100% Federal;Resiliency Grants 80% Federal, 20% Non-Federal |
| Reconnecting Communities Pilot Program (RCP) | Restore community connectivity by removing, retrofitting, or mitigating highways or other transportation facilities that create barriers to community connectivity, including mobility, access, or economic development. | 50-80% Federal, 20-50% Non-Federal |
| Safe Streets and Roads for All Grants (SS4A) | Competitive program to support local initiatives to prevent death and serious injury on roads and streets, commonly referred to as ââVision Zeroââ or ââToward Zero Deathsââ initiatives. | 80% Federal,20% Non-Federal |
| Strengthening Mobility and Revolutionizing Transportation (SMART) Grant Program | Programmed competition that will deliver competitive grants to states, local governments, and tribes for projectsthat improve transportation safety and efficiency. | 80% Federal,20% Non-Federal |
| Wildlife Crossings Pilot Program | Provides funding for projects that seek to achieve a reduction in the number of wildlife-vehicle collisions; and improve habitatconnectivity for terrestrial and aquatic species. | 80% Federal,20% Non-Federal |
| Federal Discretionary (Competitive) Grant Programs | ||
| IIJA (BIL)Federal Programs | Description | Funding Ratio |
| Federal Transit Administration Programs | ||
| Bus and Bus Facilities Discretionary Program (Section 5339) | Provides funding to states and transit agencies through a statutory formula to replace, rehabilitate and purchase buses and related equipment and to construct bus-related facilities. | 80% Federal,20% Non-Federal 85% Federal for ADA vehicles |
| Low or No Emissions Bus Discretionary Program (Section 5339) | Provides funding to states and transit agencies through a statutory formula to replace, rehabilitate and purchase buses and related equipment and to construct bus-related facilities. | 80% Federal,20% Non-Federal 85% Federal for ADA vehicles |
5 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.
5.1 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
| Project Cost Change Thresholds | ||
| Total programmed funding within the approved STIP/TIP | Amendment | Administrative Modification |
| Up to $2 million | âĨ 75% | < 75% |
| $2 million to $15 million | âĨ 50% | < 50% |
| $15 million to $75 million | âĨ 40% | < 40% |
| $75 million and above | âĨ 30% | < 30% |
5.2 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 MPOâs TIP and another MPOâs TIP unless a written agreement exists between each MPO and TDOT that such an action may be processed as an administrative modification.
5.3 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.
6 Status of Projects in FYs 2023-2026 TIP
The Johnson City MTPO discussed the status of the MTPOâs STBG balance in several Executive Board meetings. It was also announced at the Executive Board meeting on February 25, 2025 that a new TIP would be developed and asked for a status of current projects. 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 System Preservation and Operation Urban Grouping (2090565, STBG-State funds)
· National Highway System Preservation and Operation Urban Grouping (2090560, NHPP funds); and
· Safety – Urban Grouping (2090595, HSIP/PHSIP/HSIP-R funds).
Table 9
Status of Projects in FYs 2023-2026 TIP
| TIP No.TDOT PIN | Project Name(Location) | Description | Status |
| 2006-11102620.00 | Knob Creek Road Extension â Section 1(Johnson City/ TDOT) | Widening and new alignment for Knob Creek Rd from west of Mizpah Hills Drive’s intersection to Marketplace Blvd replaces an existing one-lane railroad underpass with a new overpass. | PE and Design Underway |
| 2017-16130739.00 | Traffic Signal for SR 34 (US 11E/E Jackson Blvd) & Tiger Way(Jonesborough) | Installation of a traffic signal at the intersection of State Route 34 (US 11E/East Jackson Blvd) and Tiger Way to improve safety and congestion, such as mast arms, emergency pre-emption devices, advanced traffic controls, etc. | Under Construction |
| 2022-01133219.00 | Downtown Johnson City Crosswalk Safety Project(Johnson City) | Improve safety by upgrading lighting at downtown Johnson City crosswalks and correcting Americans with Disabilities Act issues, including meeting Public Right-of-Way Accessibility Guidelines at crosswalks. | PE and Design Underway |
| 2022-02N/A | Johnson City Traffic Signal Grouping(Johnson City) | Installation of traffic signals at various intersections in Johnson City to improve safety and congestion, such as mast arms, emergency pre-emption devices, advanced traffic controls, etc. | Project Initiated |
| 2023-10134927.00 | Linear Path and Tweetsie Trail Connector (Elizabethton) | The proposed path along Hattie Avenue would connect the Linear Path at South Riverside Drive to the Tweetsie Trail at Cedar Avenue. The proposed connector is a ten foot wide path with a painted centerline that separates the five foot lanes in each direction and a minimum two foot buffer between vehicular traffic. | PE and Design Underway |
| 2023-11N/A | Roundabout at Overmountain Drive(Elizabethton) | The project is for the construction of a roundabout at the intersection of Overmountain Drive and the Walmart Access road. The circular intersection would replace the existing 3-way stop intersection and improve safety by preventing queueing of traffic onto a state route. | Not Initiated |
| 2023-12N/A | Overmountain Drive Extension(Elizabethton) | The project is for the construction of a roundabout at the intersection of Overmountain Drive and the Walmart Access road. The circular intersection would replace the existing 3-way stop intersection and improve safety by preventing queueing of traffic onto a state route. | Not Initiated |
| 2023-13N/A | Traffic Management Center(Elizabethton) | This project includes the installation of a Traffic Management Center (TMC) located in the Elizabethton Engineering Department and installation of CCTV cameras at various intersections along SR-91/67 corridor. A 1/4 mile connection will be needed to extend the existing fiber network to the new TMC. | Not Initiated |
| 2023-16N/A | Christan Church Road Improvements(Johnson City) | Widen to 3 lanes, curb and gutter, add turn lanes and sidewalks | Not Initiated |
| 2023-17N/A | Old Gray Station Road Section 2 at SR 75 and Traffic Signal(Johnson City) | Widen Old Gray Station Road to 3 lanes from Buckingham Road to 550â north of SR 75. Add a westbound right turn lane on SR 75 at Old Gray Station Road. The signal at Old Gray Station Road at SR 75 will be upgraded. | Project Initiated |
| 2023-18N/A | ITS Fiber Optic Expansion(Johnson City) | Expand fiber optic cable to additional traffic signals and locations throughout Johnson City. | Project Initiated |
| 2023-19129815.00 | Historic Covered Bridge Structural Rehabilitation(Elizabethton) | Rehabilitation of a historic transportation bridge for pedestrian use. | PE and Design Underway |
| 2090015124790.00 | Knob Creek Road Section 2 (06040)(TDOT) | Reconstruct 2 lane roadway addressing geometric issues. | Historical Review Underway |
Table 10
Status of FTA Transit Projects
| TIP No. | Project Name(Agency) | Description | Status |
| 2023-01 | JCT Transit Operating(Johnson City Transit) | Daily operating of fixed route and demand response service (including employees’ wages, fuel and oil,insurance, radio communications, operating supplies, and utilities) and capitalized ADA complementaryparatransit service. | On-Going |
| 2023-02 | JCT Capital â Sec. 5307(Johnson City Transit) | Capitalized Preventive Maintenance (labor, parts, and periodic routine services) and other capital,including support equipment, associated capital, passenger waiting shelters and bus stop signs) | On-Going |
| 2023-03 | JCT Capital â Sec. 5310(Johnson City Transit) | Acquisition of paratransit vehicles, buses, and/or technology for mass transit operations. | Completed |
| 2023-04 | JCT Capital â Sec. 5307 & 5339(Johnson City Transit) | Acquisition of paratransit vehicles, buses, and/or technology | Plan to purchase 3 buses and cameras for bus lot |
| 2023-05 | New Freedom (Johnson City Transit) | Funds operating assistance, capital purchases and program administration of the New Freedom routeservice. | Funding will be spent out by the end of 2025 |
| 2023-06 | Job Access(Johnson City Transit) | Funds operating assistance, capital purchases and program administration of the Job Access Programservices. | Old funds from the state have been spent out; program continues with Section 5307 Operating funds. |
| 2023-07 | NET Trans Operating Expenses(NET Trans) | Daily operating of demand response transportation services in the urbanized area outside of the corporate City limits including but not limited to: Bluff City, Elizabethton, Unicoi, Telford, Jonesborough. Service will also provide regional connectivity between UZAs. Daily operating of demand response service (includingemployees’ wages, fuel, insurance, radio communications, operating supplies and utilities). | On-Going |
| 2023-08 | NET Trans Capital Project(NET Trans) | Section 5339 funds that will be used to purchase vehicles for use within the Johnson City Urbanized Area | Currently working on transmitting the application for this grant to purchase a vehicle. |
| 2023-09 | Mobility Management(NET Trans) | This will fall under the Enhanced Mobility of Seniors and Individuals with Disabilities – Section 5310 grant program. This will help NET Trans continue their Mobility Management program for the urbanized areas. | On-Going |
| 2023-14 | Enhanced Mobility of Seniors and Individuals with Disabilities Program Grouping | Section 5310 transit formula funding awarded by TDOT to area agencies for capital vehicle purchases from statewide contract | Annual Application Process |
7 Projects to Carryover from FYs 2023-2026 TIP to FYs 2026-2029 TIP
After the status of a project was assessed, the determination was made whether to carryover the project to the new TIP. The Executive Board follows TDOTâs policy of âWhat we start, we finish.â The MTPO staff coordinated with project sponsors to consider a projectâs current status, available funding, and capacity for matching local funds before making the decision to carry them over to the FYs 2026-2029 TIP. Table 11 below lists the carryover projects.
Table 11
| TIP No.TDOT PIN | Project Name(Location) | Description |
| 2006-11102620.00 | Knob Creek Road Extension â Section 1 | Widening and new alignment for Knob Creek Rd from west of Mizpah Hills Drive’s intersection to Marketplace Blvd replaces an existing one-lane railroad underpass with a new overpass. |
| 2022-02N/A | Signalization Grouping | This grouping will be used to fund installation of traffic signals in the Johnson City MTPO area to improve safety and congestion, such as mast arms, emergency pre-emption devices, CCTV, advanced signal controls, etc. |
| 2023-10134927.00 | Linear Path and Tweetsie Trail Connector | The proposed path along Hattie Avenue would connect the Linear Path at South Riverside Drive to the Tweetsie Trail at Cedar Avenue. The proposed connector is a ten foot wide path with a painted centerline that separates the five foot lanes in each direction and a minimum two foot buffer between vehicular traffic. |
| 2023-11N/A | Roundabout at Overmountain Drive | The project is for the construction of a roundabout at the intersection of Overmountain Drive and the Walmart Access road. The circular intersection would replace the existing 3-way stop intersection and improve safety by preventing queueing of traffic onto a state route. |
| 2023-12N/A | Overmountain Drive Extension | This project is an extension of Overmountain Drive. Starting at the dead end of Overmountain Drive the project would join Overmountain Drive and the hospital access road through the Ballad Health property. |
| 2023-13N/A | Traffic Management Center | This project includes the installation of a Traffic Management Center (TMC) located in the Elizabethton Engineering Department and installation of CCTV cameras at various intersections along SR-91/67 corridor. A 1/4 mile connection will be needed to extend the existing fiber network to the new TMC. |
| TIP No.TDOT PIN | Project Name(Location) | Description |
| 2023-17N/A | Old Gray Station Road Section 2 at SR 75 and Traffic Signal | Widen Old Gray Station Road to 3 lanes from Buckingham Road to 550â north of SR 75. Add a westbound right turn lane on SR 75 at Old Gray Station Road. The signal at Old Gray Station Road at SR 75 will be upgraded. |
| 2023-18N/A | ITS Fiber Optic Expansion | Expand fiber optic cable to additional traffic signals and locations throughout Johnson City. |
| 2023-19129815.00 | Historic Covered Bridge Structural Rehabilitation | Rehabilitation of a historic transportation bridge for pedestrian use. |
8 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 2026-2029 TIP in order to be funded.
For this TIP, there is one project that is unfunded. It is the Knob Creek Road â Section 2 project, from Mizpah Hills Drive to Boones Creek Road. TDOT included this section as an IMPROVE Act project; however, the start of this project has been delayed due to funding constraints in the 10-Year Plan. We hope for TDOT to move this project forward in the near future.
Table 12
Illustrative Projects
| Project Name | From | To | Length Miles | Type of Improvement | Project Description | Phase | Estimated Cost |
| Knob Creek Rd -Section 2 | West of Mizpah Hills Dr | Boones Creek Rd | 1.99 | Reconstruction | Reconstruct 2 lane roadway addressing geometric issues. | PE | $2,300,000 |
9 Performance Measures and Targets
9.1 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
9.2 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 belowand 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)
| Transportation National Goals, Performance Measures and Targets | ||||
| NationalGoal | Performance Measure | Baseline(2020-2024)[1] | Performance Target for2021-2025[2] | Status for TDOT/MTPO |
| Safety | Total number of traffic-related fatalities on all public roads | 1,263.2 | 1,321.2 | Targets established by TDOT on August 31, 2024 and by Johnson City MTPO on February 25, 2025 |
| Rate of traffic-related fatalities on all public roads per 100 million VMT[3] | 1.541 | 1.579 | ||
| Total number of traffic-related serious injuries on all public roads | 5,812.6 | 6,069.2 | ||
| Rate of traffic-related serious injuries on all public roads per 100 million VMT | 7.090 | 7.251 | ||
| Total number of non-motorized fatalities and serious injuries on all public roads | 602.2 | 670.9 | ||
[1] The baseline is based on preliminary figures from early 2024. FHWA will determine the final figures in early 2025.
[2] The five-year rolling average is calculated by adding the number of fatalities for the consecutive five-year period, dividing by five, and rounding to the tenth decimal place.
[3] VMT â Vehicle Miles Traveled
Table 14 (PM2 and PM3)
| NationalGoal | Performance Measure | Baseline | 2-Year Performance Target | 4-Year Performance Target | Status for TDOT/MTPO |
| Infrastructure Condition – Pavement | Percentage of pavements on the Interstate System in Good condition | 70.8% | 58.0% | 58.0% | Targets established by TDOT on October 1, 2024; and by Johnson City MTPO by February 25, 2025 |
| Percentage of pavements on the Interstate System in Poor condition | 0.2% | 1.0% | 1.0% | ||
| Percentage of the non-interstate National Highway System in Good condition | 40.3% | 36.0% | 36.0% | ||
| Percentage of the non-interstate National Highway System in Poor condition | 4.1% | 6.0% | 6.0% | ||
| Infrastructure Condition – Bridge | Percentage of National Highway System bridges classified as in Good condition | 32.5% | 32.0% | 32.0% | |
| Percentage of National Highway System bridges classified as in Poor condition | 5.0% | 6.0% | 6.0% | ||
| Congestion Reduction | Annual Hours of Peak Hour Excessive Delay Per Capita | Not applicable to the Johnson City MTPO Area, which is in attainment and is not eligible for CMAQ funding | MTPO â not applicable | MTPO â not applicable | Targets established by TDOT on October 1, 2024; Johnson City MTPO â not applicable |
| Percentage of Non-Single Occupancy Vehicle (SOV) Travel | |||||
| System Reliability | Percentage of the Person-Miles Traveled on the Interstate that are reliable | 92.1% | 88.2% | 88.2% | Targets established by TDOT on October 1, 2024; and by Johnson City MTPO by February 25, 2024 |
| Percentage of the Person-Miles Traveled on the Non-Interstate National Highway System that are reliable | 93.4% | 89.4% | 87.0% | ||
| NationalGoal | Performance Measure | Baseline | 2-Year Performance Target | 4-Year Performance Target | Status for TDOT/MTPO |
| Freight Movement & Economic Vitality | Percentage of Interstate System mileage providing reliable truck travel time | 1.32 | 1.35 | 1.55 | Targets established by TDOT on October 1, 2024; and by Johnson City MTPO by February 25, 2024 |
| Environmental Sustainability | Total emissions reductions by applicable pollutants under the CMAQ program | Not applicable to the Johnson City MTPO Area, which is in attainment and is not eligible for CMAQ funding | MTPO â not applicable | MTPO â not applicable | Targets established by TDOT on October 1, 2024; Johnson City MTPO â not applicable |
9.3 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 42.
Table 15
| Transit National Goals, Performance Measures and Targets | ||||
| NationalGoal | Performance Measure | Baseline (June 2024) | Performance Target (June 2025) | Status for Public Transportation Providers / MTPO |
| Transit Asset Management | Rolling Stock: The percentage of revenue vehicles (by type) that exceed the useful life benchmark (ULB) | Bus – 0%Cutaway – 20%Minivan – 66%Vans – 78% | Bus – 0%Cutaway – 20%Minivan – 50%Vans – 50% | Public transportation providers established targets in June 2025; Johnson City MTPO established targets on August 7, 2025 |
| Equipment: The percentage of non-revenue service vehicles (by type) that exceed the ULB | Service Vehicles – 50% | Service Vehicles – 100% | ||
| Facilities: The percentage of facilities (by group) that are rated less than 3.0 on the Transit Economic Requirements Model (TERM) Scale | Maintenance – 0%Passenger – 0% | Maintenance – 0%Passenger – 0% | ||
| Infrastructure: The percentage of track segments (by mode) that have performance restrictions | Not applicable as no providers operate passenger trains | Not applicable as no providers operate passenger trains | Not applicable | |
Table 16
| Transit National Goals, Performance Measures and Targets | ||||
| NationalGoal | Performance Measure | Performance Target | Status for Public Transportation Providers / MTPO | |
| Number | Rate per 100K VRM* | |||
| Improving the transit industryâs safety performance | Major Events | JCT: 0 NET Trans: 0 | JCT: 0.00NET Trans: 0.00 | Public transportation providers established targets in June 2025; Johnson City MTPO established targets on August 7, 2025 |
| Collisions | JCT: 6NET Trans: 0 | JCT: 1.41NET Trans: 0.00 | ||
| Pedestrian Collisions | JCT: 0NET Trans: 0 | JCT: 0.00NET Trans: 0.00 | ||
| Vehicular Collisions | JCT: 6NET Trans: 0 | JCT: 1.41NET Trans: 0.00 | ||
| Fatalities | JCT: 0NET Trans: 0 | JCT: 0.00NET Trans: 0.00 | ||
| Transit Worker Fatality | JCT: 0NET Trans: 0 | JCT: 0.00NET Trans: 0.00 | ||
| Injuries | JCT: 2NET Trans: 1 | JCT: 0.3528NET Trans: 0.04 | ||
| Transit Work Injuries | JCT: 0NET Trans: 1 | JCT: 0.00NET Trans: 0.04 | ||
| Assault on Transit Workers | JCT: 0NET Trans: 0 | JCT: 0.00NET Trans: 0.00 | ||
| Major Mechanical Failures | JCT: 25NET Trans: 24 | Miles between Major Mechanical FailuresJCT: 24,000NET Trans: 95,558 | ||
*VRM â Vehicle Revenue Miles
9.4 Linking Performance Measures and Targets to the MTP
Section 2.2 on page 12 of this TIP document describes the selection process that is used to select projects to include in the TIP. There is one new project, with the rest being projects that are carried over from previous TIPs. TIP projects can be shown to support performance targets. Table 17 below shows the linkage of project selection criteria that have been previously used to the performance targets.
Table 17
| Linkage of Performance Measures to Project Selection Criteria | |
| Performance Measure | Project Selection Criteria |
| Safety | Safety and Security |
| Pavement / Bridge Condition | Sustainable Growth and Livability(Please note: TDOT currently maintains and manages projects on the interstate and NHS routes in the Johnson City MTPO MPA) |
| Congestion Reduction | Traffic Congestion Mitigation(Please note: the Johnson City MTPO MPA is an attainment area and is not eligible for CMAQ funding) |
| System Reliability | Traffic Congestion Mitigation(Please note: TDOT currently maintains and manages projects on the interstate and NHS routes in the Johnson City MTPO MPA) |
| Freight Movement & Economic Vitality | Regional Access(Please note: TDOT currently maintains and manages projects on the interstate and NHS routes in the Johnson City MTPO MPA) |
| Environmental Sustainability | Sustainable Growth and Livability(Please note: the Johnson City MTPO MPA is an attainment area and is not eligible for CMAQ funding) |
| Transit Asset Management | Traffic Congestion MitigationRegional AccessSustainable Growth and Livability |
| Transit Safety | Safety and Security |
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 stateâs targets, albeit a small impact.
The Johnson City MTPO reviewed all the projects in the TIP for inclusion and compliance with the MTPOâs adopted MTP, which includes the National Goals for Performance-Based Planning. The Johnson City 2050 MTP was adopted on December 13, 2022.
Table 18 below 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
| Linking MTP Goals to National Goals | |||
| MTP Goals | MTP Objectives | IIJA (BIL) | |
| Federal Planning Factors | National Goals | ||
| Goal #1: Improve Safety and Security throughout the MTPO Area Transportation System | Objective: Reduce crash rates for serious injuries and fatalities | Increase the safety of the transportation system for motorized and non-motorized users. Increase the security of the transportation system for motorized and non-motorized users. | Safety – Achieve a significant reduction in traffic fatalities and serious injuries on all public roads. |
| Objective: Reduce the number of secondary traffic crashes | |||
| Objective: Establish initiatives (projects and programs) to improve the safety and security of vulnerable roadway users (e.g. pedestrians, cyclists, transit riders, and the young and old) | |||
| Objective: Encourage partnerships with other transportation and non-transportation agencies to enhance transportation safety and security | |||
| Objective: Increase the transportation systemâs resilience to climate change and extreme weather | |||
| Goal # 2: Mitigate Traffic Congestion along Major Routes of the MTPO Area | Objective: Reduce travel delays between major attractions in the MTPO study area | Increase accessibility and mobility of people and freight. Promote efficient system management and operation. | Congestion reduction – Achieve a significant reduction in congestion on the National Highway System. System reliability – Improve the efficiency of the surface transportation system. |
| Objective: Seek cost-effective management solutions and new technologies as a means of addressing congestion, reducing transportation delay, improving travel time reliability, and improving system operations | |||
| Objective: Increase transit and other transportation demand management strategies | |||
| Objective: Enhance the flow of raw materials and manufactured products | |||
| Goal # 3: Promote Sustainable Economic Growth and Livability by Enhancing the MTPO Area Transportation System | Objective: Maintain what we have and take a âstate of good repairâ approach to our communityâs transportation assets | Emphasize the preservation of the existing transportation system. Improve the resiliency of the transportation system and reduce or mitigate stormwater impacts of surface transportation.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. | Infrastructure condition – Maintain the highway infrastructure asset system in a state of good repair. Environmental sustainability – Enhance the performance of the transportation system while protecting and enhancing the natural environment. |
| Objective: Invest in the integration and connectivity of the transportation system, across and between modes, for people and freight, to support sustainable economic development and improve quality of life | |||
| Objective: Promote alternative forms of transportation (such as walking, biking, and transit) | |||
| Objective: Support transportation investments that minimize adverse impacts of surface transportation to historical, social, cultural, and natural environments, including stormwater impacts, and reduce transportation impacts on air-quality | |||
| Goal # 4: Enhance Regional Access to and from the MTPO Area | Objective: Maintain and improve access to regional areas outside of the MTPO area | Enhance the integration and connectivity of the transportation system, across and between modes, for people and freight. Enhance travel and tourism. Support the economic vitality of the metropolitan area, especially by enabling global competitiveness, productivity, and efficiency. | Freight movement and economic vitality – Improve the national freight network, strengthen the ability of rural communities to access national and international trade markets, and support regional economic development. Reduced project delivery delays – 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. |
| Objective: Support transportation investments and policies that work to create jobs and improve access for people, tourism, places, and goods while embracing access management and corridor management strategies that preserve the long-term functionality of a roadwayâs capacity and safety | |||
| Objective: Strategically target transportation investments to areas supportive of and conducive to growth and redevelopment initiatives | |||
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 Transportationâs Family of Plans.
Figure 4
Linkage of Investment Priorities to Programming Process
| Metropolitan, Regional, State and Local Investment Decisions & Priorities |
| Metropolitan Transportation Plan(MTP) |
| TDOT 25-Year Policy Plan(LRTP) |
| Performance-Based Plans· ADA Transition Plans· Strategic Highway Safety Plan· Highway Safety Performance Plan· Statewide Multimodal Freight Plan· Regional ITS Architecture· Coordinated Public Transit â Human Services Transportation Plan· Transit Asset Management Plans· Transit Agency Safety Plans |
| State Transportation Improvement Program(STIP) |
| Transportation Improvement Program(TIP) |
| Planning/Strategy Development |
| Programming |
10 Individual Project Sheets for the FYs 2026 â 2029 TIP
The following sections constitute the program of projects to be included in the FYs 2026-2029 TIP. Figure 5 on the next page demonstrates how to read the TIP project page
Figure 5: How to Read a TIP Project Page
| The agency responsible for managing the project (local jurisdiction or TDOT) |
| If the project triggers air quality conformity (our area is in attainment) |
| Length of the project (in miles) |
| Page Number in MTP |
| Project Number assigned by TDOT (if available) |
| TIP Number assigned by Johnson City MTPO or TDOT |
| Federal Fiscal Year (ex- FFY 2023 is October 1, 2022 -September 30, 2023) |
| County and/or City in which the project will be implemented |
| Total Cost of completing the project, including all the phases of the project (some phases in the past) |
| Local Funds programmed to the project |
| State Funds programmed to the project |
| Federal Funds programmed to the project |
| Location Map provides a guide of where the project is in relation to the state, county and/or city |
| Total (federal, state, & local) Funds programmed to the project |
| Type of funding programmed to the project |
| Phase of the project being funded (PE, ROW, or CONST) |
ADMIN NOTE: The following section is under construction. As soon as the public version of the project software is available, links will be updated to those project pages. In the meantime, please see the PDF for project pages.
Section A: Surface Transportation Block Grant Program â Local Allocation to MPO Projects (STBG-L)
2022-01 Downtown Johnson City Crosswalk Safety Project
2022-02 Signalization 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
2023-17 Old Gray Station Road Section 2 at SR 75 and Traffic Signal
2026-07 Boones Creek Road Roundabout
Section B: Surface Transportation Block Grant Program â State Projects (STBG-S)
2006-01 Knob Creek Road Extension â Section 1
2090565 Surface Transportation System Preservation and Operation Urban Grouping
Section C: Highway Safety Improvement Program (HSIP)
2090595 Safety â Urban Grouping
Section D: National Highway Performance Program (NHPP)
2090560 National Highway System Preservation and Operation Urban Grouping
Section E: Transit Projects (FTA)
2026-01 JCT Transit Operating â Sec. 5307
2026-02 JCT Transit Capital â Sec. 5307
2026-03 JCT Transit Capital â Sec. 5310
2026-04 JCT Transit Capital â Sections 5307 & 5339
2026-05 NET Trans Operating Expenses
2026-06 NET Trans Capital Purchases
Section F: Transportation Alternatives
2023-19 Historic Covered Bridge Structural Rehabilitation
Section G: Carbon Reduction
2023-18 ITS Fiber Optic Expansion
2026-09 Tennessee Air Quality Improvement Grouping
Section H: 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
Notice of Public Comment Period
The Johnson City Metropolitan Transportation Planning Organization (MTPO) presents the draft Fiscal Years 2026-2029 Transportation Improvement Program (TIP) for a 14-calendar day public comment period. Comments are due by Monday, November 24, 2025. The TIP describes and lists capital projects approved for funding for the fiscal years indicated within the Johnson City MTPO Metropolitan Planning Area, which includes the municipalities of Bluff City, Elizabethton, Johnson City, Jonesborough, a sliver of the Town of Unicoi, along with unincorporated areas in Carter, Washington, and Sullivan County. There are several types of projects within the TIP. These projects include: highways, public transportation, bicycle/pedestrian facilities, traffic signalization, and intersection improvements. The projects in the TIP are derived from the 2050 Metropolitan Transportation Plan (MTP).
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.
Please use this opportunity to share with us your comments regarding the draft TIP. You may view the TIP and make comments at our website at https://jcmpo.org/tip/. Copies of the TIP are also available at the Johnson City MTPO offices, located in the Johnson City Transit Center, 137 West Market St, Johnson City, TN 37604.
If you have any questions, comments, or would like more information, please call (423) 434-6272 or email jcmpo@jcmpo.org.
Notice of Public Meeting
The Executive Board of the Johnson City Metropolitan Transportation Planning Organization will meet Thursday, December 11, 2025 at 2:00 p.m. in the Training Room at the Johnson City Transit Center, 137 West Market St, Johnson City, TN, which is ADA accessible. The Board will consider adopting the Fiscal Years 2026-2029 TIP and Safety Performance Targets. They will also receive the Annual Listing of Obligated Projects. The public is invited to attend. Complete agenda is available at www.jcmpo.org. To request special accommodations, please call 434-6272 or email jcmpo@jcmpo.org.
Draft Fiscal Years 2026-2029 TIP Comments
Comment from Dan Reese on 11/11/2025
Given the increased attention to multi-use transportation facilities that accommodate all levels of users I would recommend greater attention to how our infrastructure planning looks to safer and more integrated pedestrian and bicycling modes of use. The route crossings planned for State of Franklin Road and its intersection with University Parkway and other intersections do fit traditional transportation planning guidelines but have certain missing elements.
1. University students and the general public are observed to avoid crossing at State of Franklin Road north and east to residences and the West Walnut Street, instead prefer crossing at Lake Street and standing on the concrete lane divider to reach the newly upgraded Walnut Street Corridor with its attractive greenways and bicycle lanes.
2. The intersection of West Pine Street and University Parkway is now a complex mixture of (a.) Vehicles using the intersection as a u-turn choice to reach commercial businesses on Walnut Street. (b.)There are multiple instances per day of automobiles going south on West Pine Street’s one-way (Easterly) direction to turn right on University Parkway.
(c.) Vehicles are using driveways on East Pine Street to exit and turn around and go right on University Parkway (d.) Pedestrians, cyclists, and special needs users are in conflict with both the four lanes of traffic making turns, not following speed signage, and the above u-turning traffic as stated. (e.) The recent traffic signaling at the intersection of Southwest Avenue does allow for a brief lull in traffic and safer bicycling and pedestrian crossing but is observed to be rarely used due to user choice to cross at the more convenient and closer crossing patterns at University Parkway and West Pine Street.(f.) Well lit and observable overhead signage indicating the presence of a multi-use cautionary area is a recommended change in the current planning. (g.) Given the paved ROW width on University Parkway and State of Franklin Road safe barrier divided cycling lanes would be in order if appropriate speed designations might be considered. A disruption of traffic flow due to reduced lane with with or slower speed limits would not be anticipated.
These comments are my recommendations for changes to the 2026-2029 TIP and could be applied to not just the above mentioned intersections but to the regional transportation planning. These amendments to the planned TIP should be included in consideration of it adoption and finalization. As stated in the TIP directives these would require changes but would not be an overly burdensome financial public obligation.
“-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.”
Dan Reese
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.”
As detailed in Title 23 Code of Federal Regulations (CFR) Part 450, the STIP is defined in Federal regulations as âa 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.â 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:
âĒ Direct inclusion of the metropolitan TIP â in this situation, TDOTâs 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.
âĒ Inclusion of the metropolitan TIP by reference â in this situation, TDOTâs 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:
âĒ A major change in the total project cost (excluding groupings) (see discussion on project cost change thresholds with Table A); or
âĒ Adding a new project or deleting a project from the STIP/TIP; or
âĒ 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
âĒ Any change requiring a new regional air quality conformity finding (including a grouping); or
âĒ 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
âĒ Moving funds between an MPOâs TIP and another MPOâs 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:
âĒ Electronic correspondence describing the action taken and requesting review and approval of the proposed amendment;
âĒ A copy of the original and amended TIP pages;
âĒ Documentation supporting:
o Fiscal constraint,
o Interested partiesâ 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:
âĒ The original amendment review request,
âĒ The original supporting amendment documentation, and
âĒ Letter documenting FHWA’s or FTA’s approval.
âĒ 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:
âĒ A minor change in the total project cost (see Table A)
âĒ A minor change in project description that does not change the air quality conformity
finding in maintenance and/or non-attainment areas; or
âĒ 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
âĒ 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
âĒ 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
âĒ 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
âĒ 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
âĒ 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
âĒ 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
âĒ Adjustments in revenue to match actual revenue receipts; or
âĒ 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
âĒ 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 partiesâ 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:
âĒ Electronic correspondence describing the action taken;
âĒ 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
| Total programmed funding within the approved STIP/TIP | Amendment | Administrative Modification |
| Up to $2 million | âĨ75% | < 75% |
| $2 million to $15 million | âĨ50% | < 50% |
| $15 million to $75 million | âĨ40% | < 40% |
| $75 million and above | âĨ30% | < 30% |
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.
âĒ 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 MPOâs 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 MPOâs TIP or listed individually in the MPOâs 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.
APPENDIX A: CORRESPONDENCE STANDARDS
All amendment and administrative modification correspondence will be submitted to TDOTâs 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 TDOTâs 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 modificationâs 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 TDOTâs Long Range Planning Division and/or Multimodal Resources Division.
Appendix C: Statewide Urban Grouping Descriptions
AIR QUALITY IMPROVEMENT – URBAN GROUPING
Funding from this grouping is used to reduce transportation emissions and improve air quality. Such projects include diesel engine retrofits, traffic flow improvements, transportation control measures, transit improvements, bicycle and pedestrian facilities and programs, travel demand management, alternative fuels and vehicles, and other activities that accomplish these objectives. Projects are required to be non-regionally significant, environmentally neutral, exempt from air quality conformity requirements, and located in the metropolitan planning area.
ELECTRIC VEHICLE INFRASTRUCTURE – URBAN GROUPING
Funding from this grouping is used to deploy electric vehicle (EV) charging infrastructure and establish an interconnected network to facilitate data collection, access, and reliability. Such projects include acquisition, installation, or operation of publicly accessible EV charging infrastructure; acquisition or installation of traffic control devices to support access to EV charging infrastructure; analysis activities to evaluate demand for EV charging infrastructure; and other activities that accomplish these objectives. Projects are required to be non-regionally significant, environmentally neutral, exempt from air quality conformity requirements, and located in urban, metropolitan areas.
NATIONAL HIGHWAY SYSTEM AND PRESERVATION AND OPERATION â URBAN GROUPING
Funding from this grouping is used to support the good condition and performance of the National Highway System (NHS), construct new facilities that make progress achieving performance targets of the asset management plan, and increase facility resilience to mitigate the cost of natural disasters. Such projects include preservation and maintenance, operational improvements, bridge and tunnel projects, bicycle transportation and pedestrian infrastructure, highway and transit safety infrastructure improvements, infrastructure-based intelligent transportation systems capital and cybersecurity improvements, environmental mitigation efforts, and other activities necessary to the preservation and operation of the NHS. Projects are required to be non-regionally significant, environmentally neutral, exempt from air quality conformity requirements, and located in urban, metropolitan areas. Except as exempted in Title 23 U.S.C. Section 119, all projects will be located on the NHS.
RESILIENCY – URBAN GROUPING
Funding from this grouping is used to help make surface transportation more resilient to natural hazards, including climate change, sea level rise, flooding, extreme weather events, and other natural disasters. Such projects include resiliency planning activities, resilience improvements to improve the ability of an existing surface transportation asset to withstand elements of a weather event or natural disaster, community resilience and evacuation route activities, and other activities that accomplish these objectives. Projects are required to be non-regionally significant, environmentally neutral, exempt from air quality conformity requirements, and located in urban, metropolitan areas.
SAFETY â URBAN GROUPING
Funding from this grouping is used to achieve the Stateâs strategic or performanceâ based safety goals by reducing fatalities and serious injuries on all public roads. Such projects include installing cable barriers and guardrail, intersection improvements, pavement markings, roundabouts, rumble strips, safety equipment upgrades, signals, signing, turning lanes, railwayâhighway grade crossings upgrades, and other activities that accomplish these objectives. Projects are required to be non-regionally significant, environmentally neutral, exempt from air quality conformity requirements, and located in urban, metropolitan areas. Except as exempted in Title 23 U.S.C. Section 148, all projects will be consistent with the State strategic highway safety plan.
SURFACE TRANSPORTATION SYSTEM PRESERVATION AND OPERATION GROUPING â URBAN GROUPING
Funding from this grouping is used for projects to preserve and improve roadway conditions and performance. Such projects include highway preservation and maintenance, operational improvements, bridge and tunnel projects, pedestrian and bicycle infrastructure, transit capital projects, highway and transit safety infrastructure improvements, and other activities necessary to the preservation and operation of Tennesseeâs Federal-aid network. Projects are required to be non-regionally significant, environmentally neutral, exempt from air quality conformity requirements, and located in urban, metropolitan areas. Except as exempted in Title 23 U.S.C. Section 133, all projects will be located on roadways functionally classified as urban minor collectors or higher.
TRANSPORTATION ALTERNATIVES â URBAN GROUPING
Funding from this grouping is used for smaller-scale multimodal transportation projects to achieve safe, connected, and equitable on-and off-road networks. Such projects include pedestrian and bicycle facilities; construction of turnouts, overlooks, and viewing areas; community improvements such as historic preservation and vegetation management; environmental mitigation related to stormwater and habitat connectivity; recreational trails; safe routes to school projects; vulnerable road user safety assessments; and other activities that accomplish these objectives (Title 23 U.S.C. Section 133(h)(3); Title 23 U.S.C. 206). Projects are required to be non-regionally significant, environmentally neutral, exempt from air quality conformity requirements, and located in urban, metropolitan areas.