statewide long-range transportation plan - dot.state.wy.us · provisions in the new federal law....

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Statewide Long-RStatewide Long-RStatewide Long-RStatewide Long-RStatewide Long-Range Tange Tange Tange Tange Transportation Planransportation Planransportation Planransportation Planransportation Plan

WYOMINGDepartment of Transportation

August 2005

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Statewide

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Wyoming Department of Transportation

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PREFACE 5

EXECUTIVE SUMMARY 9

CHAPTER 1: Public Involvement 13

CHAPTER 2: Transportation and Socio-Economics 19

CHAPTER 3: Funding 25

CHAPTER 4: Highway System 33

CHAPTER 5: Aeronautics 45

CHAPTER 6: Non-Motorized Transportation 49

CHAPTER 7: Rail Transportation 53

CHAPTER 8: Other Transportation Issues 55

CHAPTER 9: Highway Patrol 61

CHAPTER 10: Management Systems 65

CHAPTER 11: State Transportation Improvement Program 69

CHAPTER 12: Public Transit 73

CHAPTER 13: Environmental Compliance 77

GLOSSARY 81

Table of Contents

WyomingDepartment ofTransportation

LONG-RANGETRANSPORTATION

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StatewideAAAAAugust 2005ugust 2005ugust 2005ugust 2005ugust 2005

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In the 1840s, thousands of settlers traversedWyoming Territory on their journey to Oregon. Theirroute paralleled the North Platte River and utilized SouthPass to cross the Continental Divide. Later, the sameroute was used by the stream of settlers headed West tomake their fortune during the height of the Californiagold rush, by the Mormon handcart migration in the1850s and again by the Pony Express. Together withstage coach routes, such as the Cheyenne-DeadwoodStage Road, the Overland Stage Route and the BlackHills Wagon Road, these historical trails represent thebeginnings of an organized transportation networkwithin the territory.

The Wyoming State Highway Department wascreated by an act of the Wyoming Legislature in 1917. In1991, the State Highway Department became theWyoming Department of Transportation (WYDOT).Since that time, the focus of the Department hasbroadened to include all modes of transportation.

The Wyoming Transportation Department recognizesthe importance of long-range transportation planning asa tool or process to be utilized in the development of aresponsive multi-modal transportation system toprovide for the safe and efficient movement of peopleand goods. From its inception, WYDOT’s primary goalhas been to plan, develop, construct, operate andmaintain a highway network connecting Wyomingcommunities. The highway network is now provided onthe basis of travel demand, safety, energy conservation,and protection and preservation of the environment. Aproperly managed state highway network can beinstrumental in facilitating the growth and developmentof Wyoming’s communities and support commercial,industrial and recreational growth. Proper managementof the state highway network is accomplished throughprinciples of sound highway planning, programmingand involvement of the public.

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The history of transportation development in Wyominghas its simple beginnings etched in the trails of the

early fur trappers and carved in the wheel ruts of thewagon trains of the mid-19th century.

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WYDOT has expanded its public information andoutreach efforts. TransPlan, the Department’s publicinvolvement process, was developed to gather inputfrom the public. Statewide planning and publicinvolvement have been emphasized in the past twofederal highway funding bills. WYDOT has continuedto refine and enhance the TransPlan process to improvepublic participation in its planning and programingactivities.

This update of WYDOT’s Statewide Long-RangePlan was developed through a comprehensive publicinvolvement process that included numerous meetingswith transportation stakeholder groups and consultationwith local officials. This policy plan is intended to guideWYDOT’s activities over at least the next five years.

The Department is in a period of some uncertainty asCongress prepares the next federal funding authorizationbill. It is understood that adjustments may have to bemade in priorities and programs in response toprovisions in the new federal law.

It is hoped that this publication also will be an aid tothe citizens of Wyoming and enhance theircomprehension of transportation construction,maintenance and planning activities needed to provide asafe and efficient transportation system. WYDOTwelcomes and solicits comments as we move forward inthe 21st century.

In order to achieve the goals of this mission, theWyoming Department of Transportation has created adetailed planning process that includes the continualupdating of this document, the Statewide Long-RangeTransportation Plan.

Transportation Planning, as is true of planning forany public expenditure, must be related to the goals ofthe geographical or political area concerned. It must bebased on the existing and anticipated economic structureof the area and it must be realistic in light of the resourcesavailable to meet the desired goals. Effective statewideplanning must recognize other governmental entities

and their respective responsibilities. WYDOT workswith local officials to provide effective communicationand coordination through its planning efforts.

GOALSGOALSGOALSGOALSGOALSThis Long-Range plan will outline the priorities and

actions necessary to accomplish WYDOT’s primarygoals:

Pursue adequate funding to accomplish theDepartment’s mission.Enhance safety on the transportation system.Preserve the quality of the existingtransportation system.Provide for the efficient transportation ofpeople and goods in Wyoming.Provide transportation mode choices to thepeople of Wyoming.Fairly and equitably fulfill our regulatoryand revenue generating responsibilities.

PURPOSEPURPOSEPURPOSEPURPOSEPURPOSEThe primary purpose of the Statewide Long-Range

Transportation Plan is to provide direction to WYDOTin the pursuit of its mission over a 20-year horizon. In anever changing world, the Department must anticipateand respond to the transportation needs of thosetraveling in Wyoming. The Department’s 2005Statewide Long-Range Plan update process includedseveral phases of work. The Systems Planning Unitreviewed a number of other states’ plans to aid in theprocess of identifying current practices, challenges,trends and national/regional issues. In order to be useful,the plan necessarily involved communication with thepublic and stakeholders to identify key transportationissues affecting WYDOT’s customers. Finally, thoseissues and concerns were evaluated to determine howWYDOT should respond in order to effectively fulfill itsmission and achieve its goals.

PUBLIC INVOLVEMENTPUBLIC INVOLVEMENTPUBLIC INVOLVEMENTPUBLIC INVOLVEMENTPUBLIC INVOLVEMENTThe public involvement process for the update began

with a number of stakeholder group meetings across thestate. Stakeholder groups included the WyomingTrucking Association, the Aeronautics Commission, the

To provide a safe, high quality, andefficient transportation system.

WYDOT’s MISSION

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Board of Agriculture, bicyclists, the Wyoming LodgingAssociation, Wyoming SafeKids, the WyomingAssociation of County Engineers and RoadSuperintendents (WACERS) and other interestedgroups. Also, in 2002 and 2004, the Departmentcontracted with the University of Wyoming to conductcustomer satisfaction surveys. The public involvementprocess will be completed when the Long-Range Plan ispresented to the public through WYDOT’s TransPlanprocess.

Input from the public and the stakeholders has beenused to produce a broad-based Statewide Long-RangePlan to guide transportation planning and programmingin the direction desired by WYDOT’s customers. Theplan recognizes trends in factors affecting thetransportation system, such as shifting demographics,land use, commuting patterns, freight volumes, andchanges in technology. Fortunately, congestion and airquality are not critical issues for WYDOT at this time.WYDOT is concerned about safety, corridor preservation,funding issues, environmental stewardship andstreamlining of the environmental review process.

Providing an efficient multi-modal transportationsystem to facilitate economic growth and developmentcontinues to be a priority for many stakeholders.

The plan attempts to provide direction for a balancedtransportation system. In addition to the road andhighway network, other modes provide for themovement of people and goods in Wyoming. Aviation,rail and pipelines are critical components of thetransportation system. The planning process hasevaluated the contributions of these and additionalmodes of transportation, such as transit, bicycling andwalking.

The recommendations in the plan reflect the policydirection that WYDOT should pursue over the next 20years. In many areas, the plan recommends that currentactivities be continued. However, in some areas, newdirections are called for to prepare for emergingchallenges. An update of the Long-Range Plan will becompleted on approximately a five-year cycle. Importantissues identified in the plan may be revisited morefrequently with update summaries provided by thePlanning Program.

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The Statewide Long-Range Transportation Planprovides policy guidance to the Department in fulfillingit’s mission and the allocation of resources. The Long-Range Plan is the product of a comprehensive publicinvolvement process. For the next 20 years, WYDOTwill focus on: improving the safety of the transportationsystem, maintaining the quality of the existingtransportation system, and bringing the State HighwaySystem up to current design standards. Another keyfocus area will be to improve the modal choicesavailable to the people of Wyoming. A summary of keyelements and issues from the 2005 Long-Range Plan isprovided below.

WYDOT’s MISSIONWYDOT’s MISSIONWYDOT’s MISSIONWYDOT’s MISSIONWYDOT’s MISSION

To provide a safe, high quality, and efficient transportation system.

Department GoalsDepartment GoalsDepartment GoalsDepartment GoalsDepartment GoalsPursue adequate funding to accomplish theDepartment’s mission.Enhance the safety of the transportationsystem.Preserve the quality of the existingtransportation system.Provide for the efficient transportation ofpeople and goods in Wyoming.Provide transportation mode choices to thepeople of Wyoming.Fairly and equitably fulfill our regulatory andrevenue generating responsibilities.

WYDOT is concerned about the rising cost oftransportation construction and maintenance. In 1991 astudy of Wyoming’s road system was completed byDeLeuw, Cather and Company for the Wyoming

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Legislature. The study found a very significant gapbetween roadway needs and available funding. TheState Legislature has not adequately addressed the needfor additional funding. Federal-aid funding has notincreased enough to close the gap. As a result, WYDOTis facing a serious situation with insufficient revenues tomaintain the State Highway System in its presentcondition. The Department must either seek additionalfunding or explore ways to reduce the cost ofmaintaining the system. Options include, transferringroads from the State System, reducing tolerablepavement quality levels, reducing design standards,reducing the target 20-year level of service expectedfrom roadway improvement projects and reducing (oreliminating) local government assistance programs.

Department PrioritiesDepartment PrioritiesDepartment PrioritiesDepartment PrioritiesDepartment PrioritiesSafety will continue to be WYDOT’s highest

priority. The Department will continue to seek anappropriate staffing level for the Highway Patrol toeffectively enforce traffic laws, commercial vehicleregulations and respond to highway emergencies.WYDOT will pursue improvements in air service andfacilities for non-motorized transportation. TheDepartment has proposed construction of additionalmulti-lane highways to improve traveler safety andachieve other benefits. WYDOT will continue to pursuemore stringent seat belt and open container laws toreduce fatal crashes and improve safety.

Other modes such as transit and non-motorizedtransportation are expected to become more importantcomponents of the transportation system over the nexttwenty years. WYDOT will continue to evaluate theappropriate role for public transportation in urban andrural areas. Also, Wyoming residents have an interest inmaintaining intercity bus service as a transportationalternative.

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Public Involvement GoalsPublic Involvement GoalsPublic Involvement GoalsPublic Involvement GoalsPublic Involvement GoalsContinue to refine and improve the TransPlanpublic information and involvement process.Specifically integrate consultation with localofficials into WYDOT’s planning andprogramming processes.Continue to improve coordination with othergovernmental agencies.Continue to improve compliance with theNational Environmental Policy Act (NEPA)through appropriate public involvementactivities.

WYDOT is committed to involving the citizens ofWyoming in its decisions. In 2002, the new OperatingPolicy on Public Involvement was adopted. In 2003,WYDOT published its new Public InvolvementHandbook and Resource Guide. Both of thesedocuments provide guidance to Department employeesfor more effective public involvement. In addition, in2004, WYDOT adopted a new policy on consultationwith local elected officials for long-range planning anddevelopment of the Statewide TransportationImprovement Plan. The Department expects toimprove both the opportunities for, and quality of publicinput and involvement over the next 20 years.

Funding GoalsFunding GoalsFunding GoalsFunding GoalsFunding GoalsIdentify the critical level of funding needed tomaintain the quality of the existing highwaysystem.Pursue state funding to maintain statehighways that are not eligible for Federal-aidfunding.Seek a higher contribution of state fundingfrom dedicated user taxes and fees.Work in cooperation with cities and countiesto secure sufficient funding for all levels ofgovernment for construction, operations, andmaintenance of transportation facilities.

Highway travel is expected to continue to be themost important mode of transportation for Wyomingresidents. Wyoming communities rely on highwaytransportation to receive the goods they need to prosper.The people of the State also rely on highways to accessjobs and recreation areas. Enhancing safety andpreservation of the existing highway system will beWYDOT’s highest priorities for the next twenty years.

Highway System GoalsHighway System GoalsHighway System GoalsHighway System GoalsHighway System GoalsImprove safety of the State Highway System.Improve cost efficiency of highwayconstruction and maintenance.Maintain mobility and highway capacity onarterial routes.Maintain, upgrade and improve the existinghighway system.Maximize transportation system effectivenessand economic efficiency by coordinating withother levels of government in transportationplanning.Improve linkages between existing multi-lanehighway facilities to ensure a comprehensiveand responsive state highway system.

Freight and Highway CapacityFreight and Highway CapacityFreight and Highway CapacityFreight and Highway CapacityFreight and Highway CapacityAccommodating increased demand for freight

transportation will be a major issue for WYDOT overthe next 20 years. Federal Highway Administration(FHWA) freight forecasts predict an increase of morethan 100 percent in the tonnage of freight hauled onWyoming highways from 1998 to 2020. The volume offreight on I-80 is expected to increase from 65 milliontons in 1998 to 135 million tons in 2020. Based on theFHWA freight forecasts, the average daily volume ofsemi-trucks on I-80 would increase to about 11,400 in2020. An increase of this magnitude will strain thecapacity of this important freight route. WYDOTPlanning will prepare its own freight analysis andforecasts. WYDOT will evaluate level of service andvolume to capacity ratios for I-80 and other key freightroutes on the State Highway System. From thisanalysis, specific improvement projects will beidentified and prioritized.

Another high priority for the Department will bemaintaining capacity on arterial highways. Over thelast ten years, changing land use patterns and theproliferation of associated access points on Wyominghighways has affected both safety and capacity. In2005, WYDOT adopted a new operating policy andrules and regulations for access management in order toarrest the decline in safety and capacity on arterialhighways. A number of other key focus areas for thetransportation system are listed below.

Highway System Focus AreasHighway System Focus AreasHighway System Focus AreasHighway System Focus AreasHighway System Focus AreasIdentify security concerns or potentialbottlenecks in the transportation system.Evaluate the need for transportation systemsafety improvements specifically related toeach mode of transportation.Identify any new routes needed to completethe State Highway System.

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Work with community emergency managementpersonnel to minimize adverse effects of roadclosures on major highways.Continue implementation of IntelligentTransportation Systems on major freightcorridors to alert drivers of winter weatherconditions and improve operations.Evaluate the need for capacity improvementson freight corridors to maintain a high level ofmobility and acceptable level of service.Evaluate possible opportunities for intermodalfreight facilities.Identify and evaluate the need for addedcapacity on sections of the State HighwaySystem to improve safety and connectivity andto reduce congestion.Design structures to accommodate anticipated25 to 30 year traffic volumes and to provideclearance for future widening of highways orunderlying roadways.Prepare for multi-lane improvements withadvanced right-of-way acquisition.Continue to improve and upgrade the olderrest areas throughout the State.Coordinate improvements on highwaysconnecting Wyoming with other states.Streamline the State Highway System bytransferring routes that do not providesubstantial system benefits to otherjurisdictions.

Aeronautics GoalsAeronautics GoalsAeronautics GoalsAeronautics GoalsAeronautics GoalsImprove the safety and efficiency of theaviation system.Effectively administer the Air ServiceEnhancement Program to develop andimprove commercial air service in the state.Continue to build strong relationships betweenlocal communities, the State of Wyoming andthe Federal Aviation Administration.Provide effective facility maintenanceprograms that properly time investments andprevent unnecessary costs.Promote educational activities for the aviationcommunity and for the general public.

Non-Motorized Transportation GoalsNon-Motorized Transportation GoalsNon-Motorized Transportation GoalsNon-Motorized Transportation GoalsNon-Motorized Transportation GoalsImprove safety for those utilizing non-motorized transportation through improvededucation of bicyclists and motorists andenforcement of vehicle code violations.Improve accommodation of bicyclists andpedestrians within the existing transportationsystem.

Institutionalize consideration of the unique needsof bicyclists and pedestrians in project planning,design, construction and maintenance.Increase the use of bicycling and walking fortransportation in Wyoming.

Rail Transportation GoalsRail Transportation GoalsRail Transportation GoalsRail Transportation GoalsRail Transportation GoalsContinue grade crossing improvement programto improve safety for Wyoming highwaytravelers.Make accurate rail information available toWYDOT customers.Require any new rail crossings of StateHighways to be grade-separated.Participate in Colorado Front Range light railplanning activities that might benefit southeastWyoming.Evaluate opportunities for intermodal transfer ofcontainers or trailers on flat cars (TOFC) inWyoming.Support Rails to Trails actions that will preserverailroad rights of way for transportationpurposes.

Through the process of updating the Long-Range Planand through general planning activities, a number ofimportant issues that are expected to impact transportationin Wyoming were identified. Goals related to some ofthese issues are listed below:

Other Transportation GoalsOther Transportation GoalsOther Transportation GoalsOther Transportation GoalsOther Transportation GoalsAppropriately respond to State and Federalregulatory obligations.Continue the Wyoming Scenic Byway Programas a tool for local or regional tourismpromotion.Continue to be involved in regionaltransportation issues and developments.Continue to provide transportation planningassistance to municipalities and counties.Identify and prepare for the transportation needsof Wyoming’s aging population.Maintain adequate capacity on transportationfacilities connecting urban areas to regionaltransportation networks.Use TransPlan public outreach and involvementto educate the public about importanttransportation issues.Use WYDOT’s Web site to educate the publicregarding construction projects and whatWYDOT does and why.

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CONCLUSIONCONCLUSIONCONCLUSIONCONCLUSIONCONCLUSIONWyoming is currently the most

dependent of the fifty states on Federal-aidtransportation funding. WYDOT is facingan impending funding crisis for rural low-volume highways. Federal-aid funds arecurrently insufficient to improve andmaintain the most important statehighways. This leaves no funding for theless traveled secondary highways. Someof these highways are not eligible forFederal-aid funding. In order to maintainthe quality of the existing highway systemit will be necessary for the State tocontribute additional funding to maintainthe transportation system.

Highway Patrol GoalsHighway Patrol GoalsHighway Patrol GoalsHighway Patrol GoalsHighway Patrol GoalsReduce drunk driving and alcohol-relatedcrashes.Increase the use of seatbelts on Wyominghighways.Increase commercial vehicle inspectionactivities by troopers to enforce size, weight,and safety regulations.Expand presence of troopers on Wyominghighways.Improve trooper retention.

Public Transit GoalsPublic Transit GoalsPublic Transit GoalsPublic Transit GoalsPublic Transit GoalsMaintain transit mobility for thetransportation disadvantaged.Evaluate the proper role for WYDOT inintercity transit.Serve as a source of information for transitproviders.Evaluate opportunities to expand transitservices.Communicate the economic developmentbenefits of public transit.

Local Assistance Program GoalsThe Department should continue to provide an

appropriate level of assistance to local governments. Anumber of existing WYDOT programs providetransportation funding assistance to local governments.

Continue the Wyoming Industrial RoadProgram to enable counties to respond toroad-building needs, especially access to neweconomic development sites.

Continue to fund the Commission RoadImprovement Program at an appropriatelevel.Continue to operate and fund the WYDOTUrban Systems Program at an appropriatelevel.Continue to provide local facilities throughthe TEAL Program.Continue to provide training and mentoringopportunities to through assignedrepresentatives of the Wind River IndianReservation’s Joint Business Council.

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WYDOT believes that well-designed publicinvolvement activities will benefit its planning andpolicy efforts and ultimately lead to better decisions andbetter projects. Effective public involvement willincrease public acceptance and support of transportationimprovement activities. The Department shouldconsider all identified interests on transportationprojects in order to make decisions that reflect the fullrange of community values. An improved decision-making process fostered by public involvement willreduce costly project plan revisions and project changeorders. Finally, increased involvement with the publicand local officials will enhance understanding,communication, and agency credibility.

WYDOT Operating Policy 17-8, updated in October2002 begins with a statement of purpose:The goal of the Wyoming Department of Transportationis to proactively involve the public in addressingtransportation issues. The Department will communicatethe agency’s mission and goals to as wide an audienceas possible and consider feedback received from outsideorganizations and the general public.

WYDOT’s PUBLIC INVOLVEMENT GOALSWYDOT’s PUBLIC INVOLVEMENT GOALSWYDOT’s PUBLIC INVOLVEMENT GOALSWYDOT’s PUBLIC INVOLVEMENT GOALSWYDOT’s PUBLIC INVOLVEMENT GOALSContinue to refine and improve the TransPlanpublic information and involvement process.Specifically integrate consultation with localofficials into WYDOT’s planning andprogramming processes.Continue to improve coordination with othergovernmental agencies.Continue to improve compliance with theNational Environmental Policy Act (NEPA)through appropriate public involvementactivities.

2005 LONG-RANGE PLAN2005 LONG-RANGE PLAN2005 LONG-RANGE PLAN2005 LONG-RANGE PLAN2005 LONG-RANGE PLANUPDATE PROCESSUPDATE PROCESSUPDATE PROCESSUPDATE PROCESSUPDATE PROCESS

WYDOT’s Planning Program completed the publicinvolvement process for the update of the StatewideLong-Range Transportation Plan. The first step was to

meet with stakeholder groups. These groups wereidentified to gather input from a diverse representationof various transportation interests. The meetings wereeffective at gathering information from a variety ofresidents with different interests. These stakeholdergroups identified key issues and concerns that WYDOTwill need to address in the next 20 years.

Individuals from the following groups andorganizations were invited to meet with WYDOT staff atspecific locations in the state to discuss their concernsand interests in transportation-related issues:

Aeronautics CommissionBoard of AgricultureLaramie BikeNetBureau of Land Management (BLM)Wyoming Outdoor CouncilU.S. Department of Agriculture, Forest ServiceCasper and Cheyenne Metropolitan PlanningOrganizationsNational Park ServiceWyoming State Trails ProgramUnion Pacific RailroadSafeKidsWyoming Association of County Engineers andRoad Superintendents (WACERS)Wyoming Association of Municipalities (WAM)Wyoming Lodging AssociationWyoming Trucking AssociationWyoming Public Transit Association (WYTRANS)

Throughout the stakeholder group meetings, certaintransportation issues were clearly a concern to manyresidents. However, there was not universal agreementon many of the issues. Future WYDOT long-rangetransportation planning should include consideration ofthe following issues identified during the stakeholdergroup process. The issues are in no specific order and areas follows: highway maintenance, construction, safetyissues, education and awareness, new multi-lanehighways, non-motorized transportation, communicationand coordination with partners, rest areas and roadclosures.

1CHAPTER InvolvementPublic

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Many groups agreed that WYDOT should receivehigh marks for highway maintenance. Many agreed thatWyoming highways are “the best in the nation.”However, numerous comments were made that snowplowing does not take place “fast enough” after a stormhits. According to several groups, the coordinationbetween counties and WYDOT snow plowing isminimal. On the other hand, numerous groups didmention that snow plowing is sufficient.

Construction issues also were discussed duringmany of the stakeholder groups. Positive commentswere received that WYDOT has high standards forconstruction, that roads are well built and maintainedand repairs are completed well. However, there were anumber of complaints mentioned concerningconstruction. Individuals suggested that projects shouldbe completed during evening hours and in off-touristseasons. Comments also were received about removingcones when construction is not taking place. Onestakeholder group also mentioned the need to use less“overbuilding” when WYDOT constructs roads. Thisgroup would like WYDOT to consider what is neededwith context sensitive design and what the safetyconcerns are, instead of just building to nationalstandards. The group does not want a “sea of pavement”throughout the State.

Safety issues were discussed in a majority of thestakeholder groups. A number of groups wereconcerned about impaired drivers, seat belt use and opencontainer laws. A few of the stakeholder groups wereinterested in more speed limit enforcement. Many of thestakeholders viewed the multi-lane initiative as a way toimprove traveler safety on Wyoming highways. Theagricultural stakeholder group was concerned aboutsafety related to farm equipment on the roads. The groupsuggested a reduction in speed limits in areas withsignificant farm traffic. This group also commented onthe need for improved intersection markings and signagealong routes used by farm equipment.

Education and awareness campaigns wereemphasized during several stakeholder group meetings.Concerns arose that WYDOT needs to do more to reachthe public. Areas of concern were bicycle and pedestriansafety issues, child restraints, seat belt usage, DUI laws,road closures, what WYDOT has available for thepublic, motorist safety and improved driver education.Several of the groups thought it would be a good idea for

WYDOT to produce a brochure to inform the public ofservices and data available.

The multi-lane proposal was a topic discussed withall of the groups. Positive comments were received frommany groups, especially in those concerned abouteconomic development and improved connectivity forsome communities in the state. Others thought multi-lane highways would be a good idea to reduce traveltime. However, several individuals questioned the needand cost of the proposal. Those individuals encouragedWYDOT to undertake detailed research and planningstudies to determine where to construct new multi-lanehighways. Comments also were received from thoseopposed to the proposal. Those individuals and groupsdid not want to see any more unnecessary road buildingin the state. Also, questions from those opposed to theproposal centered around the need for such costlyconstruction.

Improved accommodation of non-motorizedtransportation was mentioned in many of the stakeholdermeetings. Many individuals thought that WYDOTshould more seriously consider the safety needs ofbicyclists and pedestrians. Many said that shoulders onthe roadways are not wide enough and suggested morebike lanes and pathways. Also, a number of negativecomments were received about rumble strips. Peoplewere upset with several rumble strip installations in thestate. Some stakeholders requested more sweeping ofshoulders. They remarked that highway shoulders arenot free of debris, increasing the hazards of riding. Manysuggested that WYDOT add more questions concerninginteraction with bicyclists and pedestrians to the driverslicense test. On the other hand, some individuals didmention that WYDOT is doing more to accommodatenon-motorized transportation modes. The majoritycommented that WYDOT should do more to betteraccommodate non-motorized transportation.

Many of the stakeholder groups voiced the need foropportunities for coordination with WYDOT. Railroads,counties, WYTRANS, Safekids, the Board of Agriculture,environmental groups, the Forest Service, BLM, bicycleand pedestrian stakeholder groups, the Cheyenne andCasper MPOs and WACERS all commented thatinformation, data and support can be shared withWYDOT. Virtually all of the stakeholder groupsmentioned that there are common goals to be reachedand that coordination with WYDOT can be improved.

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The need for improved communication was raisedby several groups. Some stakeholder groups encouragedbetter communication between WYDOT headquartersand the districts. Inconsistencies among districts causeconfusion and frustration for customers. Other groupsmentioned the need for improved communicationbetween WYDOT and other agencies, such as countiesand federal land management agencies. Communicatingwith the public also was identified as a strength by somegroups. Improved communication was requestedspecifically in reference to road construction andclosures, safety information and distribution of otherrelevant information.

Rest areas were discussed with the majority of thestakeholder groups. Many positive comments werereceived about WYDOT’s existing rest areas. A fewcomments were made concerning the need to modernizesome of the older rest areas. Also, a number ofstakeholders requested construction of new rest areas incertain areas of the state where other facilities are notavailable.

Stakeholders were impressed with the improvementsto the Wyoming Road Report system and Web site. Afew groups suggested that more highway constructioninformation could be provided on WYDOT’s Web site.A few individuals requested more specific informationwhen the description “slick to slick in spots” is used.Also, comments were received that during the summermonths, the Web site could be used as a locator forconstruction projects along routes. Several commentsfrom stakeholder groups concerned road closures duringinclement weather. Most stakeholders appreciated what

WYDOT does during bad weather to protect motorists,however, many suggested more up-to-date messagingand more advanced warning to motorists on highwayclosures.

Another step in the public involvement process forthe Statewide Long-Range Transportation Plan, was toconduct a statewide telephone survey. This customersatisfaction survey was conducted to provide feedback toWYDOT in a number of different areas of operations.Results of the survey will be used to improve customerservice and assist WYDOT in planning for the future.

The survey results indicate that Wyoming citizenshad a positive response to almost all of the satisfactionquestions asked of them regarding the work of WYDOT.For example, of those who responded, 91 percentreported being satisfied with improvements in a highwayafter a construction project was completed and 73percent agreed that state highways had improved duringthe past five years.

The survey found that services of WYDOT’sHighway Patrol and Driver License programs were heldin particularly high regard. More than 80 percent agreedthat Patrol troopers were sufficiently courteous, whileabout 90 percent reported being satisfied with the staff atdrivers license examination stations.

For only two questions (out of 34 asked) did approvalratings fall below the 50 percent mark. Only 37 percent ofsurvey respondents were satisfied with the number ofrest areas along state highways. Just 19 percent ofrespondents thought WYDOT was accurate incommunicating to the public how long constructionprojects will take to complete.

PUBLIC PARTICIPATIONPUBLIC PARTICIPATIONPUBLIC PARTICIPATIONPUBLIC PARTICIPATIONPUBLIC PARTICIPATION

WYDOT has implemented a public involvementprocess that informs and involves citizens, affectedpublic agencies, employee representatives oftransportation agencies, private providers of transportationand other interested parties. The overall publicinvolvement process includes TransPlan, consultationwith local officials, the State Transportation ImprovementProgram (STIP) development process and project-levelactivities. WYDOT intends to provide the public areasonable opportunity to comment on transportationplans and studies, the STIP and specific transportationimprovement projects during their development.

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TransPlanTransPlanTransPlanTransPlanTransPlan

TransPlan is WYDOT’s public involvement processfor statewide planning. Planning documents arepublished with reasonable notification of theiravailability or otherwise made readily available forpublic review and comment. The TransPlan publicparticipation process includes attending meetings oflocal officials through the Wyoming Association ofMunicipalities, and the Wyoming Association of CountyOfficials and a Wyoming county fair. Department staffuse these meetings as opportunities to discusstransportation issues with elected officials, conductsurveys and provide access to planning documents.Citizen participants at these meetings are givencomment cards, surveys, access to planning documents,informational brochures and flyers.

The process for TransPlan is continually improvingand evolving. WYDOT strives to improve itseffectiveness at meeting the transportation needs of thepublic through improvement of its outreach process. Adiverse sample of comments are collected each yearduring the TransPlan process. In addition to commentsreceived at the meetings, numerous letters are receivedby planning staff throughout the year. Surveys areconducted during each TransPlan meeting to increasepublic participation and awareness concerning the latesttransportation projects, laws and programs.

New Operating Policy onNew Operating Policy onNew Operating Policy onNew Operating Policy onNew Operating Policy onPublic InvolvementPublic InvolvementPublic InvolvementPublic InvolvementPublic Involvement

In recent years, WYDOT has substantially increasedits commitment to public involvement. Former DirectorSleeter C. Dover went on record in 2000 with hisintention that the agency would review its policies andprocedures on public involvement. The biggest stepforward occurred during 2001 with the establishment ofa WYDOT task force to evaluate the Department’spublic involvement processes. The group’s statedpurpose at the outset was to develop an action plan toimprove communications between WYDOT and thepublic. Members of the task force were drawn from theplanning, design, environmental, right-of-way andpublic affairs programs, as well as local governmentcoordination. Legal and regulatory requirements for

public involvement stemming from NEPA, IntermodalSurface Transportation Enhancement Act (ISTEA) andTransportation Enhancement Act of the 21st Century(TEA-21) also were reviewed, as were past and currentWYDOT public involvement efforts including TransPlan.

In 2002, a new position was approved in eachoperations district to undertake public involvementactivities in each district. In discussing the need for newpersonnel, task force members favored a de-centralizedapproach with specialists located in the field districts.The new positions would have direct coordination withdistrict administration and staff, while adding the valueof being a local resource. The work of the task forceresulted in a new operating policy on public involvementaimed at improving the Department’s dealings with thepublic.

The consensus of task force members was thatWYDOT should institute a more comprehensive,systematic and carefully documented approach to publicinvolvement. The approach should require moreformalized procedures and closer coordination of thevarious public involvement activities within the agency.The task force envisioned WYDOT public involvementefforts starting earlier, during long-range planning, withparticular focus on identifying potentially affectedaudiences and stakeholder groups.

The task force recognized an increased need forbetter communication about what the Department doesand what it provides. Many agency customers now rankthe provision of transportation-related information as akey WYDOT function, on par with the physicalcondition of roadways. It is important to convey tocustomers that WYDOT employees not only have theskills to do the job right, but are also actively listeningand giving consideration to varying and sometimescompeting viewpoints. The task force understood thatbeing more open to external opinion did not mean theDepartment would relinquish any of its ultimatedecision-making authority.

National Environmental Policy ActNational Environmental Policy ActNational Environmental Policy ActNational Environmental Policy ActNational Environmental Policy Act

The WYDOT Environmental Services Program isthe division that is responsible for undertaking,complying, and documenting activities related to NEPA.Specific public involvement activities relating to

17


and the public. In the future, Web site use will increase aspublic information and the input on projects, planning,and programming will be posted.

WYDOT is in the process of developing a separateand discrete consultation process for local officials tocomply with new federal regulations. Information onWYDOT’s process for consultation with local officialsis available in WYDOT’s 2004 Local Consultation Plan.

Continue Positive Working Relationship with the Federal Highway Administration.

WYDOT and the Wyoming Division of the FHWAhave developed a positive working relationship over theyears. Federal review and approval are necessary forprojects utilizing federal funds. WYDOT will seek toimprove communication and coordination with FHWAon all federal-aid funded planning and constructionprojects.

Continue Coordination and Cooperation activitieswith representatives of the Wind River IndianReservation’s Joint Business Council (JBC).

WYDOT has committed to improvingcommunication and coordination with the tribes of theWind River Indian Reservation. The appointment of a

highway projects using federal money are described in23 CFR 771. These federal regulations provide for earlyand continual opportunities for the public to participatein identifying social, economic and environmentalimpacts associated with transportation improvementprojects.

Coordination with OtherCoordination with OtherCoordination with OtherCoordination with OtherCoordination with OtherGovernment EntitiesGovernment EntitiesGovernment EntitiesGovernment EntitiesGovernment Entities

Improve Communication and Coordination withLocal Transportation Planners and ElectedOfficials .

Local ConsultationConsultation with local officials is facilitated in a

number of ways, through the annual TransPlan process,Metropolitan Planning Organizations (MPOs) andWYDOT’s urban transportation planning committees.The TransPlan process for Metropolitan PlanningOrganization is used for urban areas with a population of50,000 or more. The TransPlan process for urbansystems advisory committees (USAC) is used for urbanareas with a population of 5,000, but less than 50,000.Transportation planning and programming informationis made available to local officials through these means, aswell as seeking to involve elected officials that attend theWyoming Association of Municipalities and the WyomingAssociation of County Officials Meetings.

Another important method of consultation with localofficials will be regional meetings held in each districtprior to adoption of the STIP by the Commission.WYDOT Planning and Programming documents areavailable in libraries and other public offices across thestate. These documents and their updates are madeavailable in a timely manner after publication. The STIPincludes six years of scheduled improvement projects.Updated issues of the program are available everyOctober. Updates to the Long-Range Plan are added to orreplace the existing documents as they are madeavailable.

Another means of providing information that will beused more in the future is WYDOT’s Web site.Currently, information on public meetings is availableon the Web site. WYDOT press releases, publicationsand manuals are available for planners, elected officials

18


The planning outreach activities serve as a mechanism tointroduce and stimulate interest in the various planning-related transportation issues. WYDOT will continue toexplicitly consider the concerns of the tribal governmenton the WRIR. In addition, WYDOT will provide theopportunity for the tribal government to participate in itsplanning and programming processes. This will includeevaluation of alternative modes of transportation;presentation of the STIP to tribal officials; andcoordination of state transportation planning withrelevant transportation activities carried out by the tribalgovernment. WYDOT will continue to includeconsideration of transportation needs on the WRIR inpreparing applications for discretionary funding underthe Federal Lands Highways Program.

Continue to improve coordination withFederal Land Management agencies.

The Department has taken proactive steps toimprove coordination with the US Forest Servicethrough the funding of two liaison positions. WYDOTalso hosted meetings with staff from the Forest Serviceto improve communication and understanding of thedifferent missions and cultures of the two agencies.WYDOT will be involved in updating managementplans for the federal lands in Wyoming.

Department tribal liaison has improved communication.Coordination and cooperation activities should continuewith regular meetings among agencies, involving countyand federal agencies as appropriate. The JBC should beincluded in the consultation process for the StateTransportation Improvement Plan.

The Wind River Indian Reservation (WRIR) is thethird largest Indian reservation in the United States. TheReservation is governed by a Joint Tribal Council.Approximately 60 percent (6,544) of the state’s NativeAmericans reside on WRIR.

A primary area of concern and coordination onWRIR involves management of the Indian ReservationRoad (IRR) system. Any public road within or near theperimeter of the reservation that serves the residents ofthe reservation is considered part of the IRR system. Thisdefinition also is inclusive for bridge structures. IRRsare owned and maintained by WYDOT, FremontCounty, Hot Springs County, the Bureau of IndianAffairs (BIA), or the Reservation. This ownership issomewhat evenly distributed between agencies.

Planning and zoning on the WRIR are primarilycontrolled by the tribal authorities contained within thereservation and by the BIA. WYDOT has improved itscoordination and consultation with the Shoshone andArapaho tribes on the WRIR by appointing a triballiaison and meeting regularly with tribal representatives.

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DEMOGRAPHICSDEMOGRAPHICSDEMOGRAPHICSDEMOGRAPHICSDEMOGRAPHICS

Wyoming has the smallest population and one of thelowest population densities with only 5 persons persquare mile. Thirty percent (30) of the state’s populationlives in two defined metropolitan areas, as compared toeighty percent for the entire United States. Thirty-fivepercent (35) of the population lives outside of designatedurban areas, compared to only 21 percent for the entireUS. As a result, the population of Wyoming is widelyseparated. The balance of the state’s population,residing in smaller cities or rural areas, represents 35percent of the population and are typically isolated bylong distances and separated by geographic barriers thatoften impede travel.

The lack of transportation alternatives, such asscheduled air service in much of the state, is anotherprimary reason for the population’s dependence onhighway transportation. Most areas of the state also lackintercity bus service. The state’s reliance on theautomobile is further demonstrated by its high number ofautomobiles per household and number of miles driven.

Even within urban areas of Wyoming, people rely onthe automobile. Most public transportation programs aredesigned to serve elderly or handicapped citizens andthere are few fixed route public transportation systemsoperating in the state. For Wyoming citizens, thehighway network is essential to access jobs, health care,education and necessary goods and services.

The age distribution of the Wyoming population hasan important impact on transportation demand. Peopleaged 25 to 44 tend to use the transportation system themost. The population in this age group decreased 7.1percent from 1990 to 2000. However, the elderlypopulation (age 60 and above) places a greater demandon public transportation services than other age groups.This age group increased by about 20 percent. Over thesame period, the elderly population over age 85increased by 48 percent. This trend is consistent with the

rest of the nation and is expected to continue. This shiftin the population structure will strain the capacity ofexisting public transportation systems.

The poverty rate in Wyoming peaked concurrentlywith the mining industry employment recession of 1986.Since then, the rate has been relatively stable between 10and 11 percent, or 2 percentage points below the nationalrate. This implies a significant but stable portion of thepopulation that may have a greater need for publictransportation. Although Wyoming’s homelesspopulation is considerably smaller than many otherstates, this segment of the population has a higher needfor public transportation services.

County DemographicsCounty DemographicsCounty DemographicsCounty DemographicsCounty Demographics

From 1990 to 2000, only four Wyoming countiesexperienced a decline in population (Washakie,Sweetwater, Niobrara, and Carbon). In addition,population increased less than 2 percent in Weston, HotSprings, and Goshen counties. These counties areexperiencing the national trend of rural economies withaging population and declining birth rates. The trend isexpected to continue unless something significantchanges in these counties.

Over the same time period, nine countiesexperienced more than a 10 percent increase inpopulation (Teton, Sublette, Lincoln, Johnson, Campbell,Sheridan, Laramie, Park and Crook). Many of thegrowing counties are becoming popular as retirementdestinations. These areas include Jackson, Cody,Sheridan and Buffalo. Rapid growth is not expected tocontinue in Teton County due to a shortage ofdevelopable land. Lincoln and Sublette counties willlikely continue to experience substantial spillovergrowth from Teton County. The bedroom communitiesin these counties provide more affordable housing forthose working in the retail and service sectors inJackson.

2CHAPTER Transportation &Socio-Economics

20


Population growth in Campbell County can beattributed to the recent coal-bed methane boom. Mineraldevelopment also can explain some of the growth inSublette and Sheridan counties. Laramie County’sgrowth during the 1990s can be explained partially by itsconnection to the Colorado Front Range economy.Residential construction continues to grow at a rapidpace in Laramie County.

From 1990 to 2000, the demographic group with thehighest migration out of Wyoming was the 16 to 25 agegroup. Since 1990, the 45 to 64 age group has grownrapidly in Wyoming. The state has followed the nationaltrend of increasing average age. The post World War IIbaby boomers are a key component of this national trend.The Wyoming Division of Economic Analysis expectsrapid growth in the 45 to 64 and the 65 and over agegroups to continue.

As more retirees move to Wyoming in coming years,access to health care will be a critical issue. An agingpopulation will need transportation access to specializedmedical care that is not available in many smallercommunities. Also, the demand for pedestrian facilitiesand transit services will increase as the retiredpopulation increases in many Wyoming communities.

Commuting PatternsThe Planning Program evaluated census data from

1990 and 2000 on commuting patterns to identifycounties with significant numbers of inter-county orinter-state commuters. Laramie County had the highestnumber of workers commuting to another state in both1990 and 2000 (711 and 1932, respectively). Thenumber of inter-state commuters in Laramie Countyincreased 1,221 or 171.7 percent from 1990 to 2000.Detailed journey to work data from the 1990 Censusindicate that most of the inter-state commuters fromLaramie County travel to work in Larimer and Weldcounties in Colorado. The largest number of intra-statecommuters from Laramie County travel to work inAlbany County. Analysis of this data indicates that U.S.85, I-25 and I-80 are important commuting routes forresidents of Laramie County. The large increase in thenumber of inter-state commuters in the 2000 Censusindicates that the link between Laramie County(particularly Cheyenne) and the Colorado Front Range isgrowing stronger.

Ten Wyoming counties had more than 250 inter-state commuters in the 2000 Census. Table 1 provides asummary of information on inter-state commuters inthese counties. Each of the border counties are relativelyclose to employment opportunities in another state. Theexception is Natrona County with no clear tie to anyparticular out-of-state economy. The highways mostimpacted by inter-state commuters from each of theseWyoming counties is indicated in the Table.

Intra-state commuting patterns also have changedsignificantly from 1990 to 2000. Three countiesexperienced more than a 100 percent increase in intra-state commuters over the ten year period: Lincoln (203.6percent), Crook (151.1 percent) and Platte (115.4percent). The largest number of Lincoln County intra-state commuters travel to work in Teton County. Theextremely high cost of housing in Teton County,Wyoming, has forced many people employed inJackson, Wyoming, to move their households to nearbyLincoln and Sublette counties in Wyoming and TetonCounty, Idaho. As a result, WYO 22 and US 89 havebecome an important commuter links. Table 2 providesa summary of commuting information for the Wyomingcounties with more than 500 intra-state commuters.

Analysis of this commuting information indicatesthat trips to work are having an increasing impact on theState Highway System (SHS). Wyoming drivers

21


typically favor the single-occupant vehicle for most tripsin order to minimize coordination and maximizeconvenience. The number of commuters betweenLincoln County and Teton County has a substantialimpact on peak hour traffic and level of service. Thesame can be said for the number of trips to work betweenLaramie County and Colorado. Planning will continueto identify the impact of commuter traffic on the SHS.

Land UseLand UseLand UseLand UseLand UseChanging land use is affecting the level of service on

Wyoming highways. Dispersed residential development

(sprawl) is taking place at an accelerated pace aroundmany Wyoming communities in rural unincorporatedareas. Ranchette developments on 5 to 35 acre lots areattractive to many residents and those migrating intoWyoming from larger urban areas. One of the problemsassociated with this type of development is its impact onthe transportation system. These rural developments aredependent on the automobile and require more andlonger trips. The increased traffic associated withdispersed residential development compared to low-intensity agriculture causes maintenance expenses toincrease. Also, when these developments are not

Table 1 - Inter-state Commuting Summary

County

Albany 387 2.30% Fort Collins, CO US 287, I-80, I-25Goshen 779 13.90% Scottsbluff, NE US 26, WYO 92Laramie 1932 4.90% Colorado, Nebraska I-25, US 85Lincoln 264 4.10% Idaho, Utah US 89, 30, 26, 189 WYO 89Natrona 522 1.60% Various n/aPark 291 2.40% Montana US 310, WYO 120, 294Sheridan 640 4.90% Montana I-90, WYO 345Sweetwater 333 1.80% Utah, Colorado I-80, US 191Teton 328 2.90% Idaho WYO 22, US 26Uinta 453 4.90% Utah I-80Source: 2000 Census

InterstateCommuters

Percentage ofEmployed

LogicalDestination Impacted Highways

Table 2 - Intra-state Commuting Summary

County

Albany 690 49.9% Cheyenne I-80Big Horn 544 55.0% Cody, Powell, Worland US 20, 16, 14, 14AConverse 1,295 82.6% Casper, Campbell County I-25, US 20/26, WYO 59Crook 568 151.1% Campbell County I-90, WYO 59Fremont 532 25.2% Sweetwater, etc. WYO 28, US 191Lincoln 1,087 203.6% Jackson US 89, 26, 191Natrona 1,076 3.8% Converse, Carbon Counties I-25, WYO 220Park 509 47.2% Big Horn County US 20, 16, 14, 14AUinta 1,081 -3.1% Sweetwater County I-80Source: 2000 Census

2000Intra-state

Commuters

PercentageChange

1900-2000

LogicalDestination

ImpactedHighways

22


properly planned the number access points required willadversely affect capacity of the impacted highways.

The population and traffic associated with these ruralresidential developments impacts the transportationsystems of nearby cities and towns as well. Even thoughthe people living in these developments are usuallylocated outside the urbanized areas, they place asignificant demand on public services provided by themunicipalities. As populations become more widelydispersed, the impact on the transportation systemincreases. WYDOT must be willing to provide planningassistance to local governments to help them managethese impacts and minimize impacts to the StateHighway System.

Economic BaseEconomic BaseEconomic BaseEconomic BaseEconomic BaseThe geographic and natural resource endowments of

Wyoming have largely determined the character of thestate’s economy. The importance of the mining sector inWyoming’s economy can hardly be overstated. Coal,trona, coal-bed methane, crude oil, and natural gas are themost significant components of the state’s mining sector.The competitiveness of the Wyoming mining sectordepends on a number of factors, such as thetransportation system, environmental regulation, andstate mineral taxes.

Wyoming is the nation’s leading producer of coal. In2003, more than 300 millions tons of coal was shippedprimarily through private rail systems to customersthroughout the U.S. A very limited quantity wastransported over the highway system. Trona is shippedover private rail lines as well as through an intermodalsystem, which includes highways. Natural gas and crude

economy. Irrigation in many mountain valleys hasimproved hay and crop production, but the mostidentifiable element of the state’s agriculture sectorremains livestock grazing. The agricultural sector reliesheavily on the highway system to ship and receiveproducts. Hay, grain, sugar beets, lumber, and livestockall use highways as part of their intermodal freightshipping system. A high quality highway system iscrucial to the competitiveness of the state’s agriculturalsector.

Another important economic sector in Wyoming istourism. The full impact of this industry is difficult toascertain due to the uncertainty of which expendituresshould be included for a comprehensive and accurateassessment. Tourism is the movement of people into anarea for a brief period of time and their expenditures ongoods and services in that area. Tourists spend money onmeals, hotels, admissions, retail products, medicalservices, hunting and fishing licenses, and otherservices. The broad range of expenditures and the factthat tourist spending is only a portion of total spending inthese categories challenge those estimating theeconomic impact of tourism.

The primary travel mode for tourists visitingWyoming is the highway network. A quality system ofhighways is essential to maintenance and growth of thestate tourism and recreation industry. The safety of thehighway transportation system has a significant impacton tourism growth as well. In the Jackson area currentlevels of tourist traffic are starining the capacity of thehighway system. The quality and capacity of thehighway system will determine to a large extent thepotential for tourism growth.

SOCIO-ECONOMIC FORECASTSSOCIO-ECONOMIC FORECASTSSOCIO-ECONOMIC FORECASTSSOCIO-ECONOMIC FORECASTSSOCIO-ECONOMIC FORECASTS

PopulationPopulationPopulationPopulationPopulationOver the years, the population of Wyoming has

experienced periods of rapid growth, stability, anddecline. In the 1960s, the state’s population was quitestable. The decade of the 1970s, however, was a differentstory. From the 1970 census to the 1980 census, theWyoming population grew from 332,416 to 469,557 (41percent). The tremendous growth in population can beexplained, in retrospect, as a result of the OPEC oil priceincreases of the 1970s. In the following decade, thestate’s population actually decreased by 3.4 percent as a

oil are shipped throughpipelines, althoughdrilling and extractionequipment cansignificantly impact thehighway system. Somerefined products areshipped over the State’shighway system.

The short growingseason and semi-aridclimate of most of thestate have limited theagricultural sector of the

23


result of the fall of OPEC and the corresponding declinein the domestic oil industry.

The remarkable population increases of the 1970sput great pressure on the public and privateinfrastructure of the state. In some areas, the capacity ofthe State Highway System was strained. Public schoolsbecame overcrowded and could not meet the needs ofthe increased population. Existing housing stocks wereinsufficient to meet the needs of the new migrantpopulation. The response of governments to thepopulation surge was to invest in additionalinfrastructure.

It would have been very difficult (if not impossible)in 1970 to forecast what would eventually occur in thedecade to follow. In the same way, the decline inpopulation of the 1980s was unforeseen. The WyomingDivision of Economic Analysis states that Wyominggrew faster during the 1990s than their forecastsestimated.

Forecasting the Wyoming population for the next10 to 20 years is a difficult endeavor. The populationand economic forecasts provided by the WyomingDivision of Economic Analysis (DEA) are based onvery cautious assumptions, forecasting a populationincrease of only about 7.5 percent from 2000 to 2020.Based on this growth rate the State’s population isexpected to reach only 533,534 by 2020. Thispopulation level is only 4.5 percent higher than theestimated 1983 population of 510,361. WYDOTconsiders these forecasts to be very conservative. Agrowth rate of 1 percent per year from 2000 to 2020would result in a population of 603,500. The actual2020 population will very likely fall between these twofigures.

While population growth of this magnitude may notseem significant, substantial intercounty shifts in thestate’s population are expected to occur. Most of theseshifts will be the result of changes in employmentopportunities or in-migration of retirees. Small townswith agriculture-based economies will continue tostruggle following a trend of the national economy.

The primary focus of demographics in long-rangetransportation planning relates to how populationchanges will affect the transportation system in the next20 years. Certain segments of the population tend toimpact the transportation system more than othergroups. The population aged 25 to 44 tend to drive and

use air transportation more than other groups.Alternatively, those over age 59 tend to utilize the state’spublic transportation system more than other groups.

The Wyoming population aged 25 to 44 increasedfrom 78,422 in 1970, to 148,497 in 1990, then declinedto 138,619 in 2000 for a total increase of 77 percent over30 years. Over the same time, vehicle miles traveled inthe state increased by nearly 40 percent. Since 1970, theelderly population increased from 43,730 to 57,693, anincrease of 32 percent. WYDOT has responded to thisincrease by providing public transportation services inevery county. Due to its relatively large proportion of thebaby-boomer generation (born between 1946 and 1962),Wyoming’s population is aging rapidly. In 2000, themedian age of 36.2 in the state passed the nationalaverage of 35.3. It will be particularly intensified inabout ten years as a large number of residents reachretirement age. This situation is expected to increasedemand for health care, social services and publictransportation.

The DEA county population forecasts for 2020indicate some measurable shifts in the state’spopulation. The largest percentage increases in countypopulation are expected in Teton (31.6 percent),Sublette (27.2 percent), Campbell (24.4 percent) andJohnson (23.1 percent). The largest projected numberincreases in population are Campbell (10,897), Teton(8,420), Laramie (7,661) and Natrona (5,618). Theforecasted population increases in the countiesidentified above will impact existing transportationfacilities. This could be especially true in Teton andCampbell counties where two of the most congestedState Highways are located (US 89 through Jackson andWYO 59 through Gillette). The type of additionaltransportation facilities needed in communities inthese areas will be driven by the type of residentialdevelopment that is allowed to occur as populationincreases take place. Niobrara, Sweetwater, Carbon,Hot Springs, and Washakie counties are expected toexperience losses in population ranging from 27.2 to10.5 percent.

Another trend to anticipate is the currentpopulation influx of people from large metropolitanareas throughout the country moving their families toWyoming. Many of these people are tele-commutingor commuting weekly to their jobs in thosemetropolitan areas by air. Continuation of this

24


migration will depend on the quality of airports andhighways and overall quality of life in Wyoming.Another trend not explicitly included in the forecastinvolves retirees moving into many areas of Wyomingto escape the large metropolitan areas. The migrationof retirees into the state is likely to increase demandfor local public transportation services and health careservices and facilities. The trend of younger workersmigrating out of Wyoming in search of better jobmarkets is expected to continue.

Increases in population also place pressure on thegovernment sector to maintain adequate levels ofpublic services. The economy of the state has changeddramatically over the past three decades while the taxstructure has remained static. For this reason, as thepopulation increases, state and local governmentsbecome increasingly strained in their attempts toprovide services for the increased population. Theprimary reason for this situation is the fact thatpersonal taxes pay only a very small portion of thecost of government in Wyoming. This creates astructural deficit where general fund spendingexceeds general fund revenues. Without somemechanism for the increased population to pay for thecost of the additional government services demanded,this situation is likely to continue.

Economic GrowthEconomic GrowthEconomic GrowthEconomic GrowthEconomic GrowthMost of the following information is based on the

Division of Economic Analysis’ 10-year Wyomingeconomic forecast for 2003 to 2012. Since the briefrecession in 2001, the real Gross Domestic Product(GDP) in the U.S. is growing, but at a slow pace. Debtand equity markets are strengthening and consumerconfidence is rebounding. The national economy isgradually picking up speed and should start to reachlong-term average growth by 2006.

Wyoming’s economy has been growing steadilysince 1987, hardly affected by the national recessions inthe early 1990s and 2000s. Due to the nature of theState’s economy such as high mineral production, low

manufacturing and small and sparsely distributedpopulation, the above phenomenon is not surprising.Through the 1990s, Wyoming’s economy added 34,000jobs, for an annual growth rate of 1.8 percent, slightlyhigher than the national average of 1.6 percent.

The non-farm wage and salary employment isexpected to average just 1.0 percent growth over theforecast horizon to a level at 272,050 jobs. As a naturalgas and coal-producing state with substantial mineralreserves, Wyoming is well positioned to benefiteconomically and financially from coal’s rebirth andhigher natural gas prices. However, total mining jobs areexpected to decrease slightly from the recent peak in2001 and hold between 18,000 and 19,000 over theforecasting years due to continuing improvement inproductivity. Construction is projected to be thestrongest goods-producing industry expanding morethan 1.0 percent per year.

Largely driven by the mining industry, the increaseof personal income in the state was one of the fastest inthe nation during the past two years. Wyoming’s PerCapita Income (PCI) reached $30,753, close to thenation’s $31,030, in 2002. Total personal income inWyoming is forecasted to grow 4.6 annually, slightlytrailing the national rate of 4.8 percent.

Future economic growth will require a qualityhighway system for the movement of people and goodsto all areas of the State. Maintaining the quality of thehighway system will be a high priority for WYDOT. TheDepartment has proposed expansion of several two lanehighways to multiple lanes in order to improve safetyand accommodate future economic growth. Theseexpansions are currently on hold pending availability offunding.

Action Items for 2005 - 2025Action Items for 2005 - 2025Action Items for 2005 - 2025Action Items for 2005 - 2025Action Items for 2005 - 2025

Update urban area socio-economic forecastswith 2010 census data.

Continue to monitor long-distance commuterroutes.

25


State and the federal governments rely on highwayuser taxation as the principal source of highway funds.The concept of highway user taxation was developed onthe premise that the users of highways, as the primebeneficiaries, should be responsible for the majority ofthe cost of constructing and maintaining them. Highwayuser taxation first surfaced in the form of motor vehicleregistration fees. Later it was expanded to include taxeson motor fuel; motor vehicle tires; parts andaccessories; axle weights; driver licensing fees; parkingfees; etc.

The largest source of revenue for WYDOT inFY2002 was Federal-Aid payments. This source offunding has been subject to significant fluctuation overthe years. The level of future Federal-Aid remainsuncertain as we wait for Congress to enactreauthorization legislation. Most of this funding isavailable as reimbursement for payments to contractorson transportation construction projects.

The State Highway Fund receives revenues from

3CHAPTER Funding

Source: WYDOT Management Services

state motor fuel taxes, license and registration fees,mineral royalties, and severance taxes. State fuel taxescontribute the most to the State Highway Fund.Registration and license fees for trucks and cars generatethe second largest source of revenue for the HighwayFund. Mineral severance taxes and mineral royalties arethe third most significant source of revenue for the StateHighway Fund. Fuel taxes and registration and licensefees tend to be relatively stable sources of revenue.

The instability of Federal-Aid, State severance taxesand Federal Mineral Royalties makes long rangeplanning for transportation construction and maintenancea difficult endeavor. Federal-Aid funding is affected byfederal budget priorities and revenues. Federal mineralroyalties and state severance taxes are subject tofluctuating market prices for oil, gas, and coal. WYDOTreceives a relatively small percentage of its funding fromState sources. The share of State funding for theHighway Account fell from 66 percent in 1990 to 52percent in 2000.

Sample of Total Revenuefor Fiscal Year

26


STATE TRANSPORTATION REVENUESTATE TRANSPORTATION REVENUESTATE TRANSPORTATION REVENUESTATE TRANSPORTATION REVENUESTATE TRANSPORTATION REVENUESOURCESSOURCESSOURCESSOURCESSOURCES

The Map below illustrates relative gas tax rates forWyoming and the surrounding states. The state fuel tax isthe most stable source of revenue for Wyominghighways and this source is constitutionally dedicated tofund public roads and highways. Wyoming’s gas tax rateis 14 cents per gallon. The State Highway fund receives7.5 cents per gallon. Counties receive approximately 3.5cents for road construction and maintenance. TheDepartment of Environmental Quality (DEQ) receives 1cent per gallon for the Leaking Underground StorageTank (LUST) Program. The remaining 2 cents aredistributed to Wyoming municipalities.

The Wyoming tax rate on diesel fuel is also 14 centsper gallon. The State Highway Fund receives about 9.75cents per gallon of diesel fuel. Counties receive about 2.6cents per gallon and cities and towns receive about 0.65cents per gallon of diesel. The DEQ receives 1 cent pergallon for the LUST Program.

The current level of State funds are absolutelynecessary for matching Federal-Aid funds available toWYDOT. They are also critically important for funding

Source: WYDOT Management Services

of highway maintenance activities. State funds must beused for most maintenance expenditures. They alsoprovide more flexibility to the Department for activitiesincluding construction projects on lower functionallyclassified highways.

Comparison of Fuel Tax RatesComparison of Fuel Tax RatesComparison of Fuel Tax RatesComparison of Fuel Tax RatesComparison of Fuel Tax RatesWYDOT spent almost $474 million in FY2002

fulfilling all of its statutory mission. Of that amount,$310.25 million was spent on highway constructionand $87.27 million on maintenance. The FY2002budget also included $30.17 million for aeronautics,$22.8 million for law enforcement, $14 million foradministration and $9.5 million for other spendingcategories.

Substantial inflation in construction andmaintenance has affected WYDOT’s budget sincepassage of TEA-21 in 1998. Annual construction andmaintenance spending for WYDOT has increasedsignificantly during the period covered by TEA-21. InFY1998, WYDOT spent $258 million on highwayconstruction and maintenance. In FY2002, theamount spent on highway construction andmaintenance had grown to approximately $398

Gas-User Tax Ratesfor Wyoming andSurrounding States

27


million. Unfortunately, much of that increase hasgone to inflation in construction and maintenancecosts.

Stable highway user-financed revenue sources aremuch lower in Wyoming than surrounding states. In2001, Wyoming’s highway user revenues were the3rd lowest among the 50 states. Wyoming currentlyrelies on federal mineral royalties and state severancetaxes to fill the funding gap left by its low fuel user-tax contribution. WYDOT’s reliance on mineral taxrevenues raises two primary concerns. The firstconcern is the instability of mineral-based revenuesources. Mineral prices and production levels havecaused a number of boom-bust cycles in the Wyomingeconomy, resulting in unpredictable highway funding.The second concern is that legislators often look tomineral tax revenues as a means of balancing the StateBudget in difficult economic times.

State Funded ProgramsState Funded ProgramsState Funded ProgramsState Funded ProgramsState Funded Programs

Continue to operate and fund the WYDOTUrban Systems Program at an appropriatelevel.

WYDOT’s Urban Systems Program providesassistance to the larger Wyoming cities in transportationplanning and facility construction. Metropolitan areasare defined by Federal law as those communities havingpopulations of 50,000 or more. Urban areas are those

communities with population of at least 5,000. Wyoming’stwo metropolitan areas, Casper and Cheyenne, haveMetropolitan Planning Organizations (MPOs) that areresponsible for overall transportation planning andimprovements. The two MPOs receive Federal Planning(PL) funds in addition to the construction funds. Thesefunds support the transportation planning process withinurban and metropolitan boundaries.

The urban areas, Cody, Douglas, Evanston, Gillette,Green River, Lander, Laramie, Powell, Rawlins,Riverton, Rock Springs, Sheridan, Torrington andWorland participate in WYDOT’s Urban Program.After the 2000 Census, the Town of Jackson qualifiedfor the program but has not yet decided to participate.The urban and metropolitan communities receive a shareof the $5 million set aside by the TransportationCommission each year for the program based onpopulation. These funds are available for transportationplanning or construction of transportation facilities onfunctionally classified roadways.

Although TEA-21 and ISTEA did not mandate orprovide specific funding for an urban transportationimprovement program, the Wyoming TransportationCommission has opted to continue funding the programas in the past, utilizing Surface Transportation Program(STP) funds. This Program is one way WYDOTprovides direct assistance to Wyoming cities.

WYDOT should continue to assist the urbancommunities with transportation planning through a

WYDOT’s UrbanSystem Program

28


local committee process. Each urban community isgiven the opportunity to design its own planning processwithin relatively broad program guidelines. Plannersfrom the Systems Planning group and WYDOT DistrictStaff provide technical assistance to local planners andengineers in order to improve local transportationsystems. Continuation of the Urban Systems Program isviewed as a viable way to ensure a high qualitytransportation system within the urban areas. It alsoprovides an organized means of promoting cooperationbetween WYDOT and Wyoming cities.

Continue to fund the Commission RoadImprovement Program at an appropriate level.

The Commission Road Improvement Program(CRIP) was established by WYDOT to provide financialassistance to counties for roadway improvements.WYDOT should continue to fund this program andcontinue to use it as an incentive for counties to take overresponsibility for highways that should be deleted fromthe State Highway System. The program is funded with$5 million in STP funds each year. Countycommissioners must make a request to the TransportationCommission to be eligible for funding under thisprogram.

Continue to provide training and mentoringrepresentatives of the Wind River IndianReservation’s Joint Business Council (JBC).

This can be accomplished by continuing WYDOT’sTribal Training Program with Title 23 Section 140 fundsas current legislation permits. The Department shouldencourage mentoring projects in phases of design andconstruction for roadway and bridge projects on theWind River Indian Reservation. Archeological trainingcould also be provided for assigned representatives ofthe Wind River Indian Reservation’s Joint BusinessCouncil (JBC).

FEDERAL-AID FUNDING PROGRAMSFEDERAL-AID FUNDING PROGRAMSFEDERAL-AID FUNDING PROGRAMSFEDERAL-AID FUNDING PROGRAMSFEDERAL-AID FUNDING PROGRAMS

In 1996, TEA-21 provided a substantial increase(approximately 40 percent) in federal-aid funding for the

nation’s surface transportation system. It also linkedfunding for transportation to highway user-revenuesfrom the Highway Trust Fund. The legislation alsoincluded “incentives” for states to adopt federal safetylaws, such as the 0.08 blood alcohol level for drunkdriving and prohibition of open alcoholic beveragecontainers in motor vehicles.

The largest federal-aid funding program forWYDOT is the National Highway System (NHS). Thisfederal program provides funding for improvements ofthe interstate system and other urban and rural principalarterial roadways. However, states may use a portion oftheir allocation of NHS funding as if it were SurfaceTransportation Program (STP) funding.

The second largest federal-aid funding program forWYDOT is the Interstate Maintenance Program (IM).This program is intended to provide funding for thecontinued maintenance and upgrade of the 46,000 mileDwight D. Eisenhower National System of Interstateand Defense Highways. TEA-21 allowed IM funds to beused for interstate highway reconstruction. IM fundsmay not be used for maintenance of non-interstatehighways.

The Surface Transportation Program (STP) providesfunding for any roads not classified as local or ruralminor collector, including those on the NHS. Theseroads make up the classification of federal-aid highways.A new provision in TEA-21 allows a portion of STPfunds reserved for rural areas to be spent on rural minorcollectors. Of these funds, 10 percent must be used forsafety, which includes rail highway crossings and hazardelimination. An additional 10 percent must be set asidefor transportation enhancement activities.

The Wyoming Transportation Commission hascontinued to set aside $10 million in STP funds for localprograms. The WYDOT urban program is funded with$5 million per year and the Commissioners RoadImprovement Program (CRIP) is funded with $5 millionper year. In FY2002, these set-asides exhaustedapproximately 25 percent of WYDOT’s STP allocation.

WYDOT’s Aeronautics Division receives asubstantial amount of funding from the Federal AviationAdministration (FAA). These funds must be matched ata rate of 90 percent federal and 10 percent state or localfunds. FAA funds are used for aeronautics planning andairport improvements throughout the state. In FY2002,

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the Aeronautics Division received $20.1 million fromthe FAA for improvements to 38 Wyoming publicairports.

Much of Wyoming’s public transportation fundingis provided by the Federal Transit Administration(FTA). WYDOT provides state matching funds for anumber of separate programs. These include the FTASection 5307 program (urban mass public transportationgrants), FTA Section 5311 program (public transportationgrants for rural public transportation), state-funded ruralpublic transit program, FTA Section 5309 program(mass public transportation capital grants), FTA Section5310 program (elderly and handicapped publictransportation) and the FTA.

Transit planning is funded with planning grantsthrough the Federal Transit Administration (FTA)Section 5303 and 5313(b) Programs. These Programsrequire a state or local match of 20 percent to 50 percentto qualify for the federal funds. In FY2002, federaltransit grants totaling approximately $1.9 million werereceived by WYDOT and Wyoming communities. TheState Legislature provided $1.5 million from the StateHighway Fund for rural public transportation programs.

If the level of Federal-Aid funding is substantiallyincreased over existing levels, it would be difficult forWYDOT to cover the state match required for Federal-Aid funds without increased state revenues. Thealternatives would be to reduce state-funded constructionand maintenance activities or to possibly forfeit Federal-Aid funds. Either of these options would adversely affectthe state transportation system. Another unappealingoption would be for WYDOT to eliminate some of thefunding programs outlined below. WYDOT wouldprefer to maintain these programs.

FUTURE FUNDINGFUTURE FUNDINGFUTURE FUNDINGFUTURE FUNDINGFUTURE FUNDING

Pursue adequate funding to accomplish theDepartment’s mission.Pursue state funding to maintain statehighways that are not eligible for Federal-aid.Work in cooperation with cities and countiesto secure sufficient funding for all levels ofgovernment for construction and maintenanceof transportation facilities.

The 1991 DeLeuw, Cather and Company WyomingRoad System Study indicated that $282 million wasneeded annually to maintain the existing State HighwaySystem and its infrastructure needs. The study estimatedthat the state was deferring more than $40 million yearlyin resurfacing needs. This would result in an estimated$160 to $320 million in future annual reconstructionneeds. The study further estimated that more than $6million in low priority annual needs were either left todeteriorate or given minimal stop gap maintenance.

WYDOT has long recognized these shortages and ispursuing ways and means to mitigate them.Methodologies currently being explored includeimplementation of management systems, review ofdesign and tolerable standards, utilization ofcomprehensive and coordinated transportation planningand review of revenue sources. WYDOT has beenstriving to maximize its cost efficiency and productivity.However, financial needs are beginning to severely limitthe Department’s ability to maintain the existinghighway system. It will become increasingly importantfor the public to become aware of WYDOT’s needs.

Seek a higher proportion of state fundingfrom dedicated user taxes and fees.

The American public appears willing to pay formaintenance and construction of transportationinfrastructure. A national poll conducted by ZogbyInternational (Better Roads, April 2003) found that 64percent of those surveyed would support an annual 2cent per gallon increase in the federal gas tax if therevenue was used exclusively for roads, bridges andmass transit. WYDOT plans to survey its customers todetermine their willingness to contribute more state taxrevenue toward transportation. Currently, thecontribution of state funding in Wyoming totransportation is among the lowest in the nation.

Mineral revenues received by WYDOT can be quiteunstable due to price and production fluctuations. Thismakes programming transportation construction andmaintenance spending more difficult. User taxes andfees follow the benefit principle of public financewherein those who benefit more from the provision ofhighways pay more for the privilege. In addition, fuel tax

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and other user taxes and fees tend to be more stablesources of revenue.

Identify the critical level of funding needed tomaintain the quality of the existing highwaysystem.

Current revenues from all sources are insufficient tomaintain the existing highway system at the present levelof service. Over time, as overlays and other maintenanceactivities are deferred, future spending levels required tomaintain pavement quality increase significantly.Inflation is another major contributing factor toincreased maintenance costs. Unless sufficient fundingfor maintenance is provided soon the citizens ofWyoming will have to answer the question, “Do we wantto maintain the high quality highway system that we areaccustomed to or are we ready to settle for less?”

WYDOT is currently operating under forecasts thatassume the current level of Federal-Aid funding willremain the same for the next six years. Forecasts beyondthe current fiscal year are relatively futile because of thehigh degree of uncertainty regarding when Congress willpass a transportation reauthorization bill and what it willeventually contain.

ReauthorizationReauthorizationReauthorizationReauthorizationReauthorization

The amount of federal-aid funding Wyoming willreceive under the next transportation funding bill ishighly uncertain. As of this date, the states are operatingunder a temporary extension of the provisions of TEA-21. President Bush is threatening to veto the separatebills passed by the Senate and the House ofRepresentatives. WYDOT will have to wait and see whatcomes out of the conference committee.

The larger population states that receive less infederal-aid than is contributed within their borders to theHighway Trust Fund have pushed for a larger minimumguarantee under the new legislation. It is very likely thatthese donor states will receive a larger share of fundingunder the new reauthorization bill.

A change in the minimum guarantee will reduce theamount of federal-aid received by Wyoming unless thetotal amount of funding available increases substantially.

Wyoming and other donee states receive more federal-aid funds than they contribute to Highway Trust Fund.Most of the donee states are geographically large withsmaller populations and substantial parcels of federallands. Many of these states, like Wyoming, are bridgestates that would have a difficult time maintaining theirNHS routes without substantial federal-aid assistance.Increasing the minimum guarantee for donor statescould threaten WYDOT’s ability to maintain theexisting State Highway System.

Potential Revenue SourcesPotential Revenue SourcesPotential Revenue SourcesPotential Revenue SourcesPotential Revenue Sourcesand Operational Savingsand Operational Savingsand Operational Savingsand Operational Savingsand Operational Savings

The Department completed a Highway CostAllocation Study in 1999. The study was based on datafrom 1995-1997. This was the first such studyundertaken by the Department since 1981. The userrevenue structure in the state and many other importantfactors had changed significantly since the 1981 study.Also, the 1981 study was focused on system needs andwhether existing user revenues would be sufficient tofund needed improvements. The focus of the 1999 studywas on the allocation of State Highway System costs anduser revenues. WYDOT is not entirely confident in theaccuracy of the results of the study given the unprovensoftware and some of the data limitations encountered.

The results of the 1999 study revealed that pickuptruck and single unit truck vehicle classes wereresponsible for a larger percentage share of state userrevenues than highway costs. The bus vehicle classcontributed nearly an equivalent proportion of state userrevenues and allocated costs. The automobile andcombination truck vehicle classes contributed a smallerpercentage of state user revenues than their percentage ofallocated costs. An update of the study is planned forcompletion in 2009.

If user taxes and fees were set at an appropriate level,additional state funding of transportation from othersources should not be necessary. The exception might befor revenues collected by the state for distribution tocities and counties.

The Legislature may consider repeal of the limitationon county property taxes. This might enable counties tofund maintenance of their own roads. It also may allow

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the state to abandon state highways that cannot bejustified to remain on the state system.

The limitation on city property taxes may be lifted aswell to allow cities to fund the maintenance of their ownroads. Urban areas should be encouraged to performadequate planning for their road systems. Anotherpotential source of local transportation revenue that maybe considered would be user fees such as special fueltaxes.

Potential Revenue LossesPotential Revenue LossesPotential Revenue LossesPotential Revenue LossesPotential Revenue Losses

Declining Funding From Gas TaxDeclining Funding From Gas TaxDeclining Funding From Gas TaxDeclining Funding From Gas TaxDeclining Funding From Gas TaxCurrently, WYDOT depends heavily on federal

transportation funding for highway construction andmaintenance. In FY2002, roughly 52 percent of theDepartment’s funding was received from Federal-Aid.State user fees provided 27.5 percent of WYDOT’sfunding. Mineral tax revenues provide 14 percent ofWYDOT’s funds. State and federal user fee revenuesprovide about 80 percent of the Department’s funds. Theremainder of WYDOT’s funding comes from other non-user sources.

WYDOT must attempt to anticipate potential futureproblems including declining sources of revenue. It isquite possible that fuel use, particularly gasoline, coulddecline in the near future as a result of increasing fleetfuel efficiency or development of viable alternatives tointernal combustion automobiles. Alternate fuelvehicles using CNG, dual fuel, electricity and hydrogenfuel cells may not be commercially competitive at thistime, but were hardly available 10 years ago. If any ofthese alternate fuel vehicles become commercially

competitive, alternatives sources of funding for highwayconstruction and maintenance will have to be found.Sources of additional user funding could includeincreasing the state fuel tax rate, increasing vehiclelicense fees or taxes on alternate fuels (e.g. CNG).Another source of funds could be increased fundingfrom non-user sources such as mineral tax revenues.

Cost-Reduction AlternativesCost-Reduction AlternativesCost-Reduction AlternativesCost-Reduction AlternativesCost-Reduction Alternatives

WYDOT will continue to improve its safety,pavement and bridge management systems to improvethe efficiency of its operations. WYDOT shouldimplement a more data-driven process for selection oftransportation improvement projects. By channelingWYDOT’s limited funds to those projects identified ashaving highest benefit/cost ratios, the efficiency of thetransportation system in the state can be maximized. Amore analytical approach to project programmingshould improve system efficiency. Such a process wouldrequire that some needed projects will have to be delayedbecause their priorities are lower.

Another rather unpopular means of decreasing thelevel of funding necessary for maintenance of thetransportation system would be to reduce the tolerablelevel of pavement quality before maintenance activities.The Programming needs analysis process comparesexisting highway conditions against tolerable standardsto determine physical needs. These needs are prioritizedby physical characteristics. Wyoming currently hasmany hundreds of miles on the State Highway Systemthat do not meet existing tolerable standards. Reducingtolerable standards would mean that road surfaces wouldbe allowed to deteriorate to a lower quality before moneywould be spent to improve their condition.

Another means of reducing the cost of thetransportation system would be to eliminate some of the“frills” we now enjoy. WYDOT could eliminateconstruction and maintenance funding for rest areas.Funding for the Enhancement Program could bechanneled back to the highway and air transportationsystems (with federal approval). These and otherchanges could reduce the total amount of funding neededto maintain the existing transportation system.

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Finally, WYDOT could alter its design standards byreducing the level of service. This modification wouldreduce safety and potentially increase congestion insome areas of the state. However, lowering the designstandards for construction of highways would reduce thecost of constructing or reconstructing roads. Secondaryeffects of this policy should be carefully examinedbefore its implementation.

With limited funding for maintenance, only thoseprojects with the highest cost-benefit ratios should beincluded in the STIP. Net present value should be used inthese calculations to find the projects with the greatestreturn. In this manner, the efficiency of the system willbe maintained as much as possible over time.

State Highway SystemTo provide an efficient and effective system of

highways, the State of Wyoming assumes completeresponsibility for roads of statewide importance.Current management of the state highway systemincludes the study of functional classification, needsanalysis and programming.

The functional classification of a road reflects the

type of service it is expected to provide. When correctlyclassified, a system of roads exhibits a hierarchy offunction. This eliminates duplication of service, therebyincreasing efficiency. The counties periodically verifythe functional classification of highways within theirborders.

Current practice limits the state highway system tohighways that are functionally classified as arterials,major collectors and urban collectors. Due to pastcommitments, however, several highways of lowerfunctional class remain on the state highway system.Each of these should be returned to local jurisdictionwhen the opportunity arises, such as in trade forhighways added to the state highway system. Specialstudies will be performed to determine the validity ofany proposed future additions.

Action Items for 2005 - 2025Action Items for 2005 - 2025Action Items for 2005 - 2025Action Items for 2005 - 2025Action Items for 2005 - 2025

Update Wyoming transportation needs studyto include State, city and county needs.Forecast the impact of improved fuel economyand alternate fuels on fuel tax revenues.

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Highway System Goals:Highway System Goals:Highway System Goals:Highway System Goals:Highway System Goals:

Improve safety of the State Highway System.Improve cost efficiency of highwayconstruction and maintenance.Maintain mobility and highway capacity onarterial routes.Provide and improve linkages betweenexisting highway facilities to ensure acomprehensive and responsive state highwaysystem.Maximize transportation system effectivenessand economic efficiency by coordinating withother levels of government in transportationplanning.Improve linkages between existing multi-lanehighway facilities to ensure a comprehensiveand responsive State Highway System.

From its inception, the purpose of the Departmenthas been to plan, construct, operate and maintain ahighway network to connect Wyoming’s communities.Over the years the State Highway System has grown tobecome the core of Wyoming’s transportation system,providing regional and statewide mobility. The highwaynetwork provides all-weather mobility and land accessto property, goods and services. Highways can beinstrumental in shaping the growth and development ofWyoming’s communities and support commercial,industrial and recreational expansion. Efficientmanagement of the highway network over the next 20years will require improved decision-making regardingdistribution of funding, programming of projects andproject design.

The basic function of highway planning is todetermine where, when and what highway facilities arerequired to meet the demands of travelers and shippers.

INTRODUCTIONINTRODUCTIONINTRODUCTIONINTRODUCTIONINTRODUCTION

The results of the 2004 CustomerSatisfaction Survey indicate considerablesatisfaction with the construction andmaintenance of Wyoming highways. Almost68 percent of the respondents indicated thatthey are very satisfied or somewhat satisfiedwith the condition of the state’s highways.Only 9 percent of the responses revealeddissatisfaction. The remaining 23 percent ofresponses were neutral.

Wyoming’s small and dispersedpopulation, relatively large land area andlimited availability of commercial air servicecontribute to a heavy reliance on the state’s highway system. The highway transportation system in Wyomingprovides vital links to markets for many smaller communities that are not served by other modes. An efficienthighway system is an essential prerequisite for economic growth and development in the 21st Century.

4CHAPTER HighwaySystem

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Billions of dollars have been invested in the State’shighways. Limited funding will force WYDOT toallocate resources more efficiently in order to preservethe quality of the State Highway System over the next 20years. Properly timed investment in highway facilitieswill extend the life of highway facilities and prevent theexcessive cost of premature reconstruction.

The people of Wyoming demand an integratedhighway transportation network that will serve presentand future travel demands in a safe, efficient andeconomical manner. Efforts will be taken to identifylocations with safety hazards and to reduce crash ratesand fatalities on the State Highway System. TheDepartment will continue to support economic growthand development through appropriate transportationinfrastructure improvements.

Highway System DescriptionHighway System DescriptionHighway System DescriptionHighway System DescriptionHighway System Description

Wyoming has more than 27,000 miles of publicroadways. The roadways include everything frommultilane Interstate highways to local service roads. Ofthis total, 6,850 miles are on the State Highway System(SHS) and are administered by WYDOT.

Wyoming ranks 42nd in public road mileage and 8th inland area. The state’s low population density createschallenges for air, rail and transit, making the populationvery dependent on highway transportation. Wyominghas been described as a small town with very longstreets. The highways in the State connect ourcommunities and provide access to land, goods andservices. Unlike other states in which many communitiesare served by several roads or highways, Wyomingcommunities are seldom served by more than one or two.These connections are usually state highways. The lackof redundant routes requires the State Highway Systemto serve not only inter-state and intra-state functions butalso intra-county and land access functions. Thisdependence on state highways for land access has begunto create safety and capacity problems as traffic volumeshave increased on a number of principal arterial routes.

Jurisdictional authority over Wyoming’s total publicroad mileage is: 25 percent state, 53 percent county, 8percent city, 12 percent federal and 2 percent local. Thevast majority of this mileage, 91 percent (24,979 miles),is located in rural areas while the remaining 9 percent of

the mileage (2,504 miles) is urban (located incommunities with a population of at least 5,000).

Approximately 43 percent of the urban mileage islocated in the urbanized areas of Casper and Cheyenne.Approximately eighty percent of Wyoming’s total DailyVehicle Miles of Travel (DVMT) is rural.

Highway Functional ClassificationHighway Functional ClassificationHighway Functional ClassificationHighway Functional ClassificationHighway Functional Classification

Not all of the public roadways are of equalimportance to the traveling public in Wyoming. Somehighways serve primarily long distance, interstate travel.Others serve local traffic almost exclusively. In order toprovide a framework for efficient highway systemplanning, development and maintenance highways aretypically categorized according to their primaryfunction. This procedure of categorizing highwaysaccording to use is known as highway functionalclassification.

Functional classification is a planning tool whichgroups highways into classes according to the mostimportant type of service they are expected to provide.Most highways provide a combination of traffic mobilityand access to adjoining land. However, the relativeimportance of these two functions in the operation of ahighway determines its functional classification.

Highways are functionally classified as arterials,collectors or local roads. Separate functional classes areused for rural and urban roadways. The figure illustratesthe relationship of the various functional classes to land

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access and traffic mobility. For example, freeways(under the arterial classification) provide the highestdegree of mobility, with access permitted only atinterchanges. This type of design preserves the high-speed, high-volume characteristics of the roadway andeliminates the hazardous conditions that would result ifunrestricted access was allowed for slower movingvehicles at any point along the highway. Conversely, theprimary function of local roads is to provide access toadjacent land areas. Local roads typically comprise themajority of public road mileage. Between these twoextremes are those highways (collectors) that provideboth mobility and land access.

In mature and ideal highway systems, the Freeway(Interstate) and Principal Arterial classificationscomprise more than 6 percent of the public road mileage.Since Wyoming’s State Highway System is limited incomparison to the state land area that it serves, thepercentage of Principal Arterial mileage is greater thanwould normally be expected (45.6%). The SHS is thebackbone of the state’s public road system, since itincludes nearly all of the arterial highways and arelatively high percentage of the collector roadwaynetwork. The vast majority of county roads are minorcollectors and below.

Wyoming highways, with the exception of Interstatehighways, carry relatively low volumes of traffic,especially when compared to national averages.However, traffic on Interstate 80 through Wyoming israther unique. The volume of truck traffic using I-80 tocross the Rocky Mountains is impressive. As aconnecting link between Chicago and San Francisco, I-80 is a critical link in the national movement of freight.The rate of traffic growth on this corridor is nearly twicethe state average. Semi-trucks comprise more than halfthe traffic volume and contribute significantly to themaintenance and physical requirements of the highway.Truck climbing lanes have been constructed to improvetraffic flow on key sections of I-80 including TelephoneCanyon between Laramie and Cheyenne and the ThreeSisters near Evanston. In addition, the volume of heavytrucks utilizing the I-80 corridor causes severe wearingof the pavement surface and requires the commitment ofsignificant construction and maintenance resources.This is a challenge that WYDOT will undoubtedly facelong into the future, especially in light of the FHWAfreight volume forecasts for the highway.

SafetySafetySafetySafetySafety

WYDOT’s concern for transportation safety isincluded in virtually all aspects of highway planning,design, construction and maintenance. Typicalreconstruction projects include wider paved shouldersand many projects have also included shoulder recoveryzones. Other safety advances include intelligenttransportation systems, shoulder rumble strips and theplacement of reflective beads in paint.

With increases in traffic volumes and vehicle milesof travel, one would expect an increase in the relativenumber of crashes. However, that has not been the case.The crash rate per million vehicle miles traveled hasdropped from about 2.18 in 1990 to 1.83 in 2002. Thereare several reasons for this. First, modern highways areconstructed with wider traffic lanes and bridges, flattercurves and slopes, clear zone areas along the highwaydevoid of dangerous obstacles, and improved trafficcontrol devices. Secondly, there have been improvementin vehicle safety design. Third, WYDOT has embarkedon an aggressive highway safety campaign to promotethe use of seat belts and child restraints. The Departmenthas also placed a higher priority on drunk drivingenforcement. As a result, the percentage of fatal crasheswith alcohol involved dropped from 49.5% in 1992 to35% in 2002.

WYDOT has always been committed to theconstruction of safe highways and the development of asafe highway system. To help achieve this goal,WYDOT maintains an extensive database of crashinformation and routinely monitors and evaluates crashlocations to identify high crash locations. If appropriate,safety improvement projects are then programmed forconstruction. This process has resulted in improvedsafety for travelers on the State Highway System.

In 2003, WYDOT conducted a comprehensivesafety inventory. This internal study found that the vastmajority of WYDOT’s operations and spending aredirectly related to improving traveler safety. Accordingto the study, “It would be difficult to discern whichactivities provide for the safety of Wyoming’stransportation system as all activities contribute, in oneway or another, in achieving WYDOT’s mission ofproviding a safe and efficient transportation system.”

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Federal-Aid Highway ProgramFederal-Aid Highway ProgramFederal-Aid Highway ProgramFederal-Aid Highway ProgramFederal-Aid Highway ProgramIn the past, the federal-aid highway program funds

were devoted to the construction and improvement ofspecific roadway systems (Interstate, Primary, Secondaryand Urban). In 1991 the Primary, Secondary and UrbanPrograms were replaced by the National HighwaySystem (NHS) and Surface Transportation Programs(STP). The routes included in the NHS have beenapproved by the FHWA and Congress. Funding underthis program is distributed to the states according tomileage and vehicle miles on principal arterialhighways. The NHS system in Wyoming contains 2,951miles. Funds from the STP block grant program can beused for construction or improvement of rural highwaysclassified as rural major collector and above or for urbanhighways classified as collector and higher.

Other federal-aid funding programs include: theCongestion Mitigation and Air Quality (CMAQ)Program for projects in air quality non-attainment areas(out of compliance) for carbon monoxide and ozoneemissions. Wyoming may utilize these funds as normalSTP funds since all areas of the state meet federal airquality standards for ozone and carbon monoxide. TheBridge Replacement and Rehabilitation Programprovides funding for bridges on public roads. The PublicLands Highway Program provides funding for IndianReservation Roads, Forest Highways and National ParkRoads.

Federal-Aid funds provided under ISTEA and TEA-21 were intended to provide for an intermodal nationaltransportation system. Unlike previous acts, theyprovided funding for all modes of transportation,including bicycle and pedestrian facilities. Recentfederal policy places a higher priority on publicinvolvement, environmental and cultural considerations.These federal laws also have provided for moreflexibility in the use of federal-aid funds. New federalrules and policies require WYDOT to be moreresponsive to the desires of the public.

Observed TrendsObserved TrendsObserved TrendsObserved TrendsObserved TrendsHighways have played an instrumental role in the

development patterns of the state. There is no reason toexpect a decline in the importance of the highway systemin the next 20 years. The economic prosperity of the state

relies heavily on the maintenance of a quality highwaynetwork. The State’s economic base is primarilycomprised of mining, tourism and agriculture.Highways provide the access and mobility vital to thetourist economy and the production and distribution ofmineral resources, agricultural products and industrialgoods. Recreation and tourism are extremely dependentupon access to public lands, national parks, historic sitesand scenic attractions. Wyoming residents depend on thehighway network to access necessary goods andservices. In addition, access to public services, such aspolice and fire protection, mail delivery, medical healthfacilities and public education, are provided by thehighway network.

No single mode of transportation can be expected toservice all of the State’s transportation needs. Alltransportation facilities are subject to inherent strengthsand weaknesses. However, the highway system operatesas the most readily accessible and independenttransportation mode within the state. Both the rail and airmodes are dependent upon the highway network tocomplete trips that have origins or destinations beyondthe physical boundaries of their facilities. Highways areand will continue to be the foundation on which all othertransportation modes build and expand.

The last sections of State Highway System werepaved within the past 10 years. Over the next 20 years,a few new sections of highway may be constructed.However, the Department’s primary emphasis will bepreservation of the existing system. Resurfacing,

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rehabilitation and reconstruction projects will be the rulein an attempt to extend the useful life of existinghighways. Needs analysis and Pavement ManagementSystems will continue to provide valuable informationto the project selection process in order to get the mostout of available funds.

HIGHWAY SYSTEM FOCUS AREASHIGHWAY SYSTEM FOCUS AREASHIGHWAY SYSTEM FOCUS AREASHIGHWAY SYSTEM FOCUS AREASHIGHWAY SYSTEM FOCUS AREAS

More than 94 percent of the almost 7,000 miles of theState Highway System are rural. These highwaysprovide for interstate and intrastate movement of peopleand goods. The purpose of the SHS is to provide asystem of highways connecting Wyoming communities.The SHS must also provide continuous connections tohighways and destinations in other states. Routes on theSHS should provide access to incorporated municipalities,state parks, popular recreation areas or state institutions.Certain routes on the SHS provide benefits to only a fewlocal residents. WYDOT Planning will review the status

of these routes, functionally classified as local roads orminor collectors. Those routes not fitting the SHScriteria will be recommended for deletion from the SHS.WYDOT should continue to use the CRIP to provideincentives for counties to take over responsibility forsome of these routes.

Access ControlAccess ControlAccess ControlAccess ControlAccess ControlStrengthen WYDOT’s access managementoperating policy and rules and regulations tomaintain mobility on higher order routes.Partner with cities and counties to limitaccess to higher order roadways in order tomaintain system mobility on connectingcounty roads and city streets.

Authorities at the state, county and local levels areauthorized to design highways and streets and toregulate, restrict or prohibit access to those highways.Access to state highways must conform to standards setby WYDOT. The Department’s enforcement of itsexisting regulations regarding highway access has beenineffective on many routes. This had led to a degradationof highway capacity on a number of highways. WYDOTshould be especially vigilant on arterial routes in thevicinity of cities and towns where dispersed residentialdevelopment can create demand for a significant numberof access points.

The degrees of control vary from full access controlon systems such as the interstate, to very limited control,on such systems as local roads and streets. Thefunctional hierarchy of roads and road usage runs fromarterial, with the highest level of mobility and the lowestdegree of land access, to local roads with the lowest levelof mobility and the highest degree of land access.

Access management balances the competing needsof providing access to land while preserving a safe andefficient flow of traffic on the roadway. If executedproperly, access control generates the followingbenefits:

Improved safety due to less frequent and severecrashes and fewer pedestrian conflicts.Reduced travel delays.Increased and preserved roadway capacities.Reduced fuel consumption.More aesthetically pleasing roadways.

Streamline the StateHighway System bytransferring routes thatdo not providesubstantial systembenefits to otherjurisdictions.Identify any new routesneeded to complete theState Highway System.

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It is the policy of WYDOT to restrict land access toroadways with high mobility because the main purposeof these roads is to maintain the efficient mobility ofpeople and goods. Adding land access points degradesthe safety and efficiency of roadways. WYDOTcurrently maintains the Rules and Regulations forAccess Driveways to Wyoming State Highways, dated1982, as the access control guide for the state. Thisbooklet outlines the state’s basic access control policy,maximum allowable approaches under ideal conditions,regulations and information for obtaining drivewayaccess permits, design requirements for accesses, typicalresidential and commercial access layouts and theapplication for a permit to construct an access driveway.

The ineffectiveness of the current AccessManagement Policy to limit accesses and protectmobility has become evident. WYDOT is updating itsaccess management policy to better protect mobility onthe SHS as traffic continues to grow. The public inputprocess for updating this policy is expected to becompleted during calendar year 2005. Issues addressedin the new policy include: medians, auxiliary lanes,signal spacing, driveway location and design, drivewayspacing, corner clearance, reverse frontage or backageroads and internal circulation and connectivity ofindividual businesses.

Improve Efficiency of Road ClosuresImprove Efficiency of Road ClosuresImprove Efficiency of Road ClosuresImprove Efficiency of Road ClosuresImprove Efficiency of Road Closures

Use Intelligent Transportation Systems (ITS) toalert drivers of winter weather conditions andhelp prevent crashes and improve systemoperation.

Work with community emergency managementpersonnel to minimize adverse effects of roadclosures on major highways.

Minimizing the impacts of weather-related highwayclosures is a constant test to the Department, especiallyalong I-80 where traffic volumes have increasedsubstantially in recent years. Today, closures of morethan a couple of hours can clog interstate shoulders andramps and even travel lanes. Stranded travelers also canquickly overwhelm all but the largest towns along theroute.

The Department has taken a number of measures toreduce closure-related problems along the interstate forboth travelers and communities. WYDOT meets withlocal emergency response personnel to coordinateclosure plans. WYDOT has implemented a procedure tosupervise safe parking of cars and trucks at the closuresite or, in some circumstances, sending vehicles back tonearby communities. WYDOT will continue toconstruct additional parking areas for trucks alonginterstate highways as part of programmed improvementprojects.

The Department’s road report telephone system wasrecently upgraded to handle the ever-growing volume ofcalls. Finally, the Department plans to utilize ITS towarn travelers about upcoming adverse conditions farenough in advance to adjust their route. The intent is toalert drivers of dangerous conditions so that they canavoid crashes, thus helping to decrease closures.Additionally, ITS can be used to alert drivers of closuresenough in advance for them to stop in communities withtraveler services. The Department will continue to applynew technology as it becomes available in the ongoingchallenge of keeping Wyoming’s highways safelypassable in winter weather and minimizing problemswhen roads must be closed.

IIIIIntelligent Transportation Systemsntelligent Transportation Systemsntelligent Transportation Systemsntelligent Transportation Systemsntelligent Transportation Systems

Continue implementation of intelligenttransportation systems on major freightcorridors

Some of the most exciting developments intransportation are occurring in Intelligent TransportationSystems (ITS). These systems use technology to

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alleviate congestion and safety problems, improveoperating efficiency for transit and commercial vehiclesand reduce the environmental impact of growing traveldemand. Application of ITS on major freight corridorscan improve safety where a substantial mix of vehicletypes exist. Applications of this technology can be usedto warn drivers in advance of hazardous drivingconditions or road closures. Advanced warning canreduce the impact on smaller communities when majorfreight corridors are closed.

To initiate intelligent transportation systemsdevelopment in Wyoming, WYDOT unveiled an ITSStrategic Plan during the fall of 2001. Throughimplementation of the strategic plan, the Departmentwill concentrate ITS application on the I-80 corridor.Other ITS goals include: prioritizing and schedulinghighway and other transportation projects, managingand informing the public of highway emergencies andproviding other traveler information, improving travelersafety and security and regulating commercial motorvehicle operations.

Evaluating, deploying and refining ITS solutions toaddress the areas of need identified by the strategic planwill be an ongoing challenge for WYDOT during the2002 to 2006 plan period. The WYDOT GeographicInformation System (GIS) and ITS programs, TrafficProgram, Telecom Program and a number of consultantsare working together on this endeavor.

WYDOT’s ITS components include the pre-tripinformation systems and roadside devices. Pre-tripinformation systems are intended to inform the public ofconditions before drivers leave home. Roadside devices,such as dynamic message signs, are intended to informdrivers of conditions during their travels.

Deployment of roadside devices enable the system tobe effective. In order for ITS to be effective, safety andefficiency issues need to be identified, such as high crashlocations and critical corridors for the movement ofgoods. The ITS devices should be deployed in highpriority locations. The final deployment stage is toevaluate effectiveness with follow-up analysis.

WYDOT will evaluate the following instruments toimprove the ITS throughout Wyoming. The instrumentsinclude road and weather information systems, highwayadvisory radios, dynamic message signs, web cameras,PTZ cameras, animal detection systems, ice detectionsystems and auto road closure gates. Currently, severallocations throughout the state are being tested for futureuse of these instruments.

Accommodate Freight MovementAccommodate Freight MovementAccommodate Freight MovementAccommodate Freight MovementAccommodate Freight MovementEvaluate the need for capacity improvementsrelated to freight movement on the StateHighway System.

Evaluate the need for safety improvementsspecifically related to freight transportation.Identify security concerns or potentialbottlenecks in the transportation system.

FHWA estimates that in 1998, 80 percent of theestimated nine trillion dollars worth of annual freightwas transported by truck. They estimate that more than11 billion of the 15 billion tons of freight was transportedby truck. Economic growth and the North American FreeTrade Agreement (NAFTA) have led to increasedfreight transport on many highway corridors. Thetonnage of trade between the United States, Canada andMexico increased by about 90 percent from 1994 to2000.

Although the impacts of NAFTA have not been asgreat in the Mountain Region of the United States,increased truck movements through Wyoming as abridge state are evident. Truck traffic on I-80 inWyoming increased by more than 56 percent from 1994to 2000. This trend is expected to continue. Otherhighway segments are experiencing high truck volumes,some of which were not anticipated at the time they weredesigned and constructed. These segments will beidentified and the need for improvements analyzed.

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The ability of the U.S. transportation system to movegoods and services in an effective and cost-efficientmanner is critical to the maintenance of America’s highstandard of living. The U.S. economy is evolving into astructure requiring greater reliability of freight transport.Just-in-time inventory delivery models require thefreight logistics system to be much more efficient.Information technologies and electronic commerce haveplaced greater demand for efficiency of freight transportand places more goods in the distribution pipeline forminimal amounts of time. This process has reduced theneed for warehouses and reduced idle time of goods inmany production processes. Trucks have become fleetsof rolling warehouses. The highway system plays a vitalrole in freight movement, in that the vast majority ofgoods are transported on this component of thetransportation system.

The I-80 corridor in particular is becoming morecongested with truck traffic. Steep grades exacerbatelevels of congestion due to slow moving trucks. Evenwith WYDOT’s 24-hour snow plowing activity, theharsh and unpredictable Wyoming winters necessitateperiodic roadway closures due to blizzard conditions orassociated crashes. In addition, high winds frequentlycause tractor-trailer blowovers along Wyoming’sinterstates and occasionally lead to highway closures.With few viable east/west alternatives for the freightindustry, these conditions will continue to present amajor inconvenience to the trucking industry. With truckdelays costing an estimated $1 per minute per vehicle,these delays add up to hundreds of thousands of dollarsannually. WYDOT has begun evaluating the need for acontinuous third lane along the I-80 corridor. Climbing

lanes have relieved congestion and improved level ofservice in certain locations. WYDOT is in the process ofimplementing ITS improvements on the I-80 corridor aswell.

Safety effects of the interaction between passengervehicles and large combination trucks have becomeanother substantial concern on the route. An analysis ofcrash data on I-80 for the period from 1992 to 2002indicates that almost two-thirds of the crashes involvingmore than one vehicle involved a large truck. About 39percent of all crashes involved large trucks over theperiod. On the average, 41.5 percent of the traffic on theroute for the same 10-year period was large trucks.

A Pre-Pass weigh-in-motion system has beenimplemented at several of Wyoming’s port-of-entrylocations. The system allows truckers from participatingcompanies to enter the state without stopping. This savestrucking delay time and eliminates traffic safety issuesassociated with deceleration and acceleration of trucksinto and out of ports-of-entry. Trucking companies payfor each use of the Pre-Pass System, so the program isuser-funded. Approximately 25 to 30 percent ofWyoming’s truckers currently utilize the Pre-Passsystem. Also, a joint port-of-entry for Wyoming andMontana is under design for the Sheridan area that willshare facilities and database information.

WYDOT also is actively pursuing advance warningsystems for crash and weather-related highway closuresand conditions along the interstate corridors. Monitoringsystems include remote weather sensors, cameras, etc.Spreading the word of a closure far enough in advancefor truck drivers to take action is a primary concern.WYDOT is working with the neighboring states ofNebraska, Colorado and Utah to coordinate efforts towarn drivers of closures they may approach far enoughin advance to alleviate severe congestion at closurepoints.

A dynamic messaging system will soon beimplemented on I-80 between Cheyenne and Laramie inan effort to improve safety in an area known for highcrash rates and adverse weather conditions. The strategyis to reduce interstate closures by influencing driverbehavior with speed monitoring devices, dynamic safe-speed message signs, etc. Web cameras and dynamicmessage signs have been upgraded in the Green Riverarea on I-80 to assist in diverting traffic for maintenanceor other conditions within the tunnels.

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WYDOT is implementing ITS on other NHS routesas well. A high-crash area on Alt. US-14A betweenBurgess Junction and Lovell measures and calculatesvehicle speed and length to trigger a dynamic signwarning drivers to slow down. A runaway truck rampattenuator system outside of Buffalo on US 16 not onlynotifies the Buffalo Maintenance Yard if the attenuatoris activated, but also triggers a dynamic sign along thecorridor notifying other truckers that the runaway rampis out of service. Similarly, a dynamic warning systemnotifies WYDOT and approaching vehicles in theNugget Canyon area on US 30 if the Nugget Canyonbridge is iced over. WYDOT will continue to exploreother ITS solutions in an effort to improve safety andreduce costly delays and highway closures on the NHSsystem.

Ensure freight corridors retain a high levelof mobility and acceptable level of service.

WYDOT will continue to evaluate and forecastfreight trends along I-80 and other major freightcorridors to ensure that improvements scheduled in theState Transportation Improvement Program are designedto safely and efficiently handle projected truck volumes.The FHWA Office of Freight Management andOperations has released its forecasts for highway freightthrough the year 2020. The forecasts predict an increasein the tonnage of freight shipments to, from and withinWyoming of more than 100 percent in 2020 compared tothe base year of 1998. The projected tonnage of freight in2010 is 101 million tons and in 2020 it increases to 135million tons. An increase of this magnitude in freightvolume over the 1998 level of 65 million tons will bedifficult to accommodate without some increases inhighway capacity. WYDOT will evaluate the need for acontinuous third lane and/or redundant routes along theI-80 corridor. Also, the Department is evaluating theeconomics of separate facilities for large trucks andpassenger vehicles as an alternative to a continuous thirdlane on I-80.

Evaluate possible opportunities for intermodalfreight facilities.

The forecasted increases in highway and rail freightmovement for Wyoming are very significant. It may be

difficult for the trucking industry alone to accommodatethe forecasted increase in tonnage. In anticipation,WYDOT is in the process of evaluating the potential forintermodal facilities in Wyoming to better integratetruck and rail freight movement.

Congestion and Capacity ExpansionCongestion and Capacity ExpansionCongestion and Capacity ExpansionCongestion and Capacity ExpansionCongestion and Capacity ExpansionContinue to identify and evaluate the needfor added capacity on sections of the StateHighway System to improve connectivityand safety and to reduce congestion.Design structures to accommodateanticipated 25 to 30 year traffic volumes andto provide clearance for future widening ofhighways or underlying roadways.Prepare for multi-lane improvement withadvanced right-of-way acquisition.

WYDOT’s Multi-lane Initiative evolved frompublic requests for such facilities along the StateHighway System. Residents have requested newmulti-lane highways in the name of local or regionaleconomic development, highway safety and trafficcongestion. The potential need to expand the state’ssystem of multi-lane facilities was discussed in the1995 Statewide Long-Range Plan. Highway freightforecasts from the FHWA indicate a need for addedcapacity on major freight routes. The TransportationCommission has moved the issue forward byproposing legislation to fund expansion of the multi-lane system.

Fortunately, traffic congestion is not yet a majorproblem for Wyoming’s urban communities. However,increasing truck volumes on I-80 are beginning toadversely impact Level of Service (LOS) on thehighway. In order to address the issues of maintainingLOS and improving safety, WYDOT is in the processof evaluating the need for additional lanes on theentire length of the I-80. Planning studies will beundertaken to determine if or when improvement tosix lanes may be feasible. If additional lanes aredetermined to be feasible, the studies should setpriorities for where those added lanes should beconstructed. If the need for added capacity isidentified, then improvements to any structuresshould be designed to accommodate future highwaywidening.

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The need for added capacity in and around urbanareas will be evaluated. Certain locations wheretraffic congestion has been identified as a potentialproblem include WYO 59 in Gillette, US 14Abetween Cody and Powell and US 89 in Jackson.Planning studies should be conducted to identify otherlocations where capacity improvements may be neededover the next 20 years.

Additional structure clearance over underlyingroadways should be considered when those roadwaysmay be widened for added capacity in the next 20 to 40years. The emphasis of this consideration should be on I-80 and the highways included in the multi-lane initiative.

Economic BenefitsInvestment in expanding the multi-lane highway

system in Wyoming is difficult to justify purely on thebasis of relieving traffic congestion. However, otheranticipated benefits of highway investment are lessobvious. Better highways can improve access tocommunities and enable them to compete for economicdevelopment opportunities. In addition, the directeconomic benefits of highway construction aresubstantial. FHWA is coordinating a Highways and theEconomy Initiative to improve our understanding ofhighway-led employment and productivity growth.

Economic development is highly dependent onhaving a high quality transportation system. One of themost important considerations for virtually any businessseeking a new location is the availability of a multi-lanehighway in close proximity to a prospective site.According to economic development experts, the vastmajority of businesses want to be within 2 miles or 10minutes of a multi-lane highway so that they canefficiently receive necessary supplies and deliver theirproducts to their markets.

In the last 15 years, many businesses have chosen topurchase more transportation in order to reduce otherlogistics costs such as warehouse space and inventories.Just-in-time delivery of products and manufacturingcomponents have increased the productivity of the U.S.economy by utilizing the freight transportation systemmore efficiently. An expanded network of multi-lanehighways would improve the efficiency and reliability ofWyoming’s transportation system and improve itscompetitiveness with other areas in the country.

Employment generated by construction is one of themost tangible and immediate direct economic benefitsproduced by corridor expansion. According to theFHWA, the impact of $10 million of highwayinvestment is 447 full-time jobs. Additionally,providing better accessibility to markets provides forfuture business and job growth. The increase in mobilityequates to a reduction in transportation costs forbusinesses and consumers by reducing time needed totransport materials and goods. Businesses reapingbenefits of increased efficiency are then free to enhancefuture productivity through research, development orfacilities expansion.

Expanding a highway for additional safety,efficiency and capacity does not necessarily equate toimmediate economic development, but it does invitecompetitiveness with other regions of the WesternUnited States. Accordingly, highway investment is usedas a recruiting tool, enticing businesses with the prospectof cost reduction through efficiency. These costreductions permit products to be sold at lower prices andlower prices can be expected to lead to business growth.An important empirical finding of the current research isthat the higher total production costs associated withoutput expansion effect are sometimes ‘financed’ almostentirely by the cost saving productivity gains of highwaycapital investments. In other words, companies candevelop to their fullest potential from cost savingsresulting from operating with a more efficienttransportation system.

Investment in highways has often been viewed as aneffective economic development strategy, particularlyfor underdeveloped rural areas. Benefits includeimproved access to services and jobs for rural residents,better access to customers for businesses, reducedtransportation costs, potential reductions in travel time,decreased vehicle operating costs and safety andenvironmental gains. Improved highway access canresult in costs savings for local consumers with goodsand services becoming more competitively priced.

Expansion of the State Highway System would servemore than just Wyoming residents. Wyoming acts as abridge state by providing for through traffic andconnectivity for interstate commerce. Wyoming mustcontinue to provide connectivity and remain competitivewith the expansion of alternate routes in adjoining states.

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Residents of our State may not reap the benefits ofthrough movements and business expansion orrelocation along these corridors if our highwayinfrastructure does not provide multi-lane connections.

Right-of-WayMany areas of the state, including Jackson, Star

Valley and Sheridan are already experiencingunprecedented growth. The rapid expansion of theRocky Mountain Front Range in Colorado is alreadyhaving a significant impact on the Cheyenne area aswell. As primary transportation routes approachcapacity, collector routes will certainly be impacted aswell.

Now is the time to consider expansion of keyhighway facilities, while right-of-way is available andbefore construction costs rise further. Right-of-wayshould be acquired on high priority routes in advance ofspecific improvement projects to preserve the corridorfor capacity expansion projects. As Wyoming continuesto grow, land development, right-of-way costs andaccess management issues will further complicate futureconstruction endeavors.

SafetyA recent study by Forrest and Stewart claimed that

crash reductions ranging from 40 to 60 percent may beachieved by conversion of problematic two-lane routes

to multi-lane facilities. Unfortunately, their analysis didnot include intersections; the conclusions were based on,but not limited to, crash, inventory and traffic dataextracted from FHWA’s Highway Safety InformationSystem. However, the New Mexico Department ofTransportation has determined that multi-lane highwaysin their state have resulted in a 40 percent decrease inserious injury and fatality crash rates compared to two-lane highways. In New Mexico, crash records indicatesignificantly fewer crashes on four-lane highways thanon two-lane highways. A study conducted by theirTraffic Safety Bureau determined that a 40 percentreduction in serious injury and fatal crashes can beexpected on highways improved from a two-lane to four-lane facility.

Highway User BenefitsThe benefits of WYDOT’s Multi-Lane Initiative

would go beyond regional economic competitivenessand highway safety. The Wyoming highway user willbenefit significantly from continuous passing lanes andresulting reductions in travel delay times. Higher Levelsof Service (LOS), more uniform speeds, improved fuelefficiency and reductions in wear-and-tear on vehiclesare some of the other benefits to local residents who willuse these corridors. No highway user enjoys theconstriction of heavy truck traffic on a two-lane facilityin a state recognized for steep grades and adverseweather conditions. Redesigning Wyoming’s highways

Table 3 - WYDOT Multi-Lane Initiative

Route Description LengthUS 26 Torrington to Nebraska State Line 7.3 MilesWYO 220 Casper to Muddy Gap Junction 61.6 MilesUS 287/WYO 789 Rawlins to Muddy Gap Junction 41.2 MilesUS 287 Laramie to Colorado State Line 21.2 MilesWYO 59 Gillette to Douglas 113.0 MilesUS 30/WYO 89 Border Junction to Kemmerer 52.5 MilesUS 30 Kemmerer to I-80 44.2 MilesUS 20/26 Casper to Shoshoni 87.5 MilesUS 16, 20/WYO 789 Worland to Greybull 35.9 MilesUS 16, 20/WYO 789 Worland to Thermopolis 25.9 Miles

Source: WYDOT Planning

along select corridors canaddress these and other issues.

Proposed RoutesThe following sections of

the National Highway Systemin Wyoming were selected forpotential upgrade to multi-lane on the basis ofconnectivity, highway safety,traffic congestion andeconomic development.Routes were evaluated forfreight movements, volumesand percentage of trucks,traffic safety/operations, system

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The Montana Department of Transportation has noimprovements in their STIP for US 310, MontanaHighway 59 or Montana Highway 314. Reconstructionof Montana Highway 72 is planned for FY2006.

The Idaho Transportation Department has noimprovements in their STIP for US 26 or Idaho Highway34. Reconstruction of US 89 from milepost 30.0 to 31.1is planned for 2005. Minor improvements are plannedfor US 30 from milepost 454.3 to 454.8 in 2006.

The Utah Department of Transportation has noimprovements planned in their STIP for Utah Highway16. Minor overlay work is planned for Utah Highway150 in the next five years. Minor widening and culvertextensions are planned for Utah Highway 30 in the nextfive years. Major pavement rehabilitation is planned forI-80 in the next five years.

The Colorado Department of Transportation has noimprovements planned in their STIP for US 85 or US287. A minor widening project to add shoulders isplanned for Colorado Highway 13 in the next five years.A system quality and safety project is planned forColorado Highway 125 in the next five years.

ACTION ITEMS FOR 2005 to 2025ACTION ITEMS FOR 2005 to 2025ACTION ITEMS FOR 2005 to 2025ACTION ITEMS FOR 2005 to 2025ACTION ITEMS FOR 2005 to 2025

Update highway functional classification forthe State Highway System.Truck traffic forecasts for major freightcorridors. Evaluate the need for safety improvements and

capacity improvements related to freightmovement on the State Highway System.Evaluate possible opportunities for intermodalfreight facilities.Identify security concerns or potentialbottlenecks in the transportation system.Streamline the State Highway System bytransferring routes that do not providesubstantial system benefits to otherjurisdictions.

Identify any new rest area locations needed tocomplete the State Highway System.Prepare for multi-lane improvement withadvanced right-of-way acquisition.

analysis (transportation system links and relationships) andregional growth projections. Candidate sections werefurther investigated for completion of a functional system(missing link), environmental sensitivity, scheduling,opportunity urgency of preserving access control and easeof design and construction. All proposed sections ofhighway are rural principal arterials on the NationalHighway System. (This list is not prioritized.)

WYDOT’s initiative to expand the state’s networkof multi-lane highways would not only provide animpetus for economic development but serve as aproactive step in preparing for future traffic volumes.Approximately 11 million vehicle miles are traveledannually on the 10 proposed multi-lane routes.

Rest AreasRest AreasRest AreasRest AreasRest Areas

Roadside rest areas along highways where travelerscan stop, rest and become rejuvenated are essential fordrivers to remain alert and to drive safely. In thiscapacity, rest areas are an important part of the statetransportation system. Rest areas with parking for largetrucks are especially important for freight corridors.However, rest areas are important to most travelers.Many public comments have recently identifiedadditional rest areas as a needed improvement to thetransportation system. WYDOT will continue toimprove and upgrade older rest areas, update its rest areastudy to identify routes in the state where travelerservices are separated by more than 50 miles andevaluate the need for new rest areas.

Interstate CoordinationInterstate CoordinationInterstate CoordinationInterstate CoordinationInterstate Coordination

Coordinate improvements on highwaysconnecting Wyoming with other states.

The Nebraska Department of Roads has noimprovement plans in their STIP for US 20. Projects forresurfacing, repair and rehabilitation are planned for US26 and Nebraska Highway 92 within the next five years.

The South Dakota Department of Transportation hasno improvements in their STIP for US 18, US 16, US 85or South Dakota highway 34. They have undertakenpreliminary studies for future improvement of US 18.

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EXISTING CONDITIONSEXISTING CONDITIONSEXISTING CONDITIONSEXISTING CONDITIONSEXISTING CONDITIONS

There are 120 landing areas (95 airports and 25heliports) in Wyoming. Of these, 42 are public useairports, two of which are privately owned and theremaining 40 are publicly owned. Public use airports aredivided into three Federal Aviation Administration(FAA) categories dependant upon the quantity and typeof activity at each location: Primary, CommercialService and General Aviation.

General Aviation airports do not support air carriersor large commercial aircraft operators. In Wyoming, themost commonly operated aircraft at General Aviationairports are those in the business aviation sector. Theseare generally smaller than the familiar mass passengercommuter or air carrier aircraft. Compared to thenumber of registered private aircraft in the state, thereare a significant number of pilots who own and operatetheir own aircraft. However, a large percentage of airtravel in Wyoming is associated with air passenger andcargo service at the Primary and Commercial Serviceairports.

Fixed Base Operators (FBOs) are usually theprimary businesses located at the airports. They typicallyprovide services in the forms of fuel, hangars, aircraftmaintenance, and repair and flight instruction.Additionally, air taxi services, geological and animalsurveys and aircraft rentals may be offered by FBOs.

Air ambulance operations are another functionserviced or provided by many FBOs. Long distances anddifficult terrain in Wyoming create an accentuated needfor air ambulance service. An extensive system ofairports makes effective air ambulance possible.

The Aeronautics Division realized many changes,challenges and accomplishments in 2003. Afterreconsideration by the Wyoming Legislature of whetherto combine the Aeronautics Commission into theTransportation Commission, a new AeronauticsCommission was appointed by the Governor in the firsthalf of 2003.

Currently, there are 10 communities in Wyomingwith regularly scheduled commercial airline passengerservice. Nine of these airports are Primary airports,meaning they record more than 10,000 enplanements

5CHAPTER Aeronautics

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Aeronautics Division, will review and approveapplications from the communities on a competitivebasis. This funding provides a considerable movetoward establishing consistent, dependable and affordablecommercial air transportation for travelers. TheAeronautics Division will continue to work to improveair service by working closely with state and localentities to develop an environment that is conducive forstability and growth for commercial air service.

External Agency RelationshipsExternal Agency RelationshipsExternal Agency RelationshipsExternal Agency RelationshipsExternal Agency Relationships

Continue to build strong relationshipsbetween local communities, the State ofWyoming and the Federal AviationAdministration.

Another goal of the Aeronautics Division is to findnew and better ways to serve and build strongerrelationships with those involved in the state aviationsystem. In the recent past, the Division has reorganizedsome administration processes. In 2004, the Divisiondeveloped a project programming procedure called theWyoming Aviation Capital Improvement Program(WACIP) to improve the allocation of constructionfunding. The project granting and budgeting processeshave been streamlined. Finally, the Priority RatingModel was updated. The update process utilized a taskforce with representation from different types ofairports, the Aeronautics Division and the AeronauticsCommission.

The Priority Rating model is an important tool usedto evaluate and rank airport projects for state funding.The improvements to the processes were customizedtoward all entities involved, including the AeronauticsDivision and other state agencies. Thus far the reactionshave been very positive. In the future, the Division willcontinue to adjust or create new processes as necessaryto serve the needs of the aviation community.

Aviation SafetyAviation SafetyAviation SafetyAviation SafetyAviation Safety

Improve safety and efficiency of the aviationsystem.

The Aeronautics Division will strive to improve thesafety of aviation within the state. Throughout the long-

annually: Jackson, Sheridan, Cody, Gillette, Riverton,Casper, Cheyenne, Rock Springs and Laramie. Jacksonrecords the majority of the state’s airline enplanements.Casper is the only international airport in the state.Worland is the only Commercial Service airport in thestate because the airport accounts for less than 10,000enplanements annually.

Desired Future ConditionsDesired Future ConditionsDesired Future ConditionsDesired Future ConditionsDesired Future ConditionsThe Wyoming Aeronautics Division must plan for a

safe, efficient and environmentally responsible aviationsystem. Air service is essential to tie local communitiestogether and to link communities to regional, nationaland international transportation systems. Airtransportation links are important for economic growthbecause they provide needed access for the import andexport of goods and services, as well as facilitating theimportant tourism industry in Wyoming. The overallstructure of the State aviation system and condition ofeach individual airport in that system provide for safe,reliable access to business and leisure travelers. Airservice can also influence where future economicdevelopment is likely to occur. The quality of integrationof airport facilities into local surroundings andconnections to other modes of transportation areimportant factors for new and expanding business,industry and residential development.

Air Service EnhancementAir Service EnhancementAir Service EnhancementAir Service EnhancementAir Service Enhancement

Effectively administer the Air ServiceEnhancement Program to develop andimprove commercial air service in the state.

Perhaps the most visible challenge facing theAeronautics Division is improving commercial airservice in Wyoming. Recent state legislation earmarked$3 million for air service improvement grants tocommunities throughout the state. The legislation wasintended to increase enplanements, decrease ticketprices, improve reliability, create competition, andmaintain and develop vital air transportation connections.

The Wyoming Business Council, with the assistanceof the Wyoming Aeronautics Commission and the

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improve the scheduling of pavement maintenanceprojects based on pavement condition and other data.

Aviation EducationAviation EducationAviation EducationAviation EducationAviation Education

Promote educational activities for theaviation community and for the generalpublic.

As an extension of the Aeronautics Commission, theDivision promotes educational activities. The Divisionwill continue to promote a national art competition forelementary students. Occasionally, the Division learnsof a young person who is very enthusiastic aboutaviation and educates them about the opportunities in theaviation field. The Division will continue to educateairport personnel by promoting security measures suchas the national hotline for general aviation security. TheDivision also plans to sponsor aerospace educationalseminars in the future.

term future, improving airport safety will focus onstringent land use protection, prevention of Part 77surface penetrations and regularly scheduled 5010airport safety inspections. In addition, the Division willcontinue to support safety projects at airports anddevelop and implement new, technologically advancedweather systems and navigational aids.

Efficient Facility MaintenanceEfficient Facility MaintenanceEfficient Facility MaintenanceEfficient Facility MaintenanceEfficient Facility Maintenance

Provide effective facility maintenanceprograms that properly time investments andprevent unnecessary costs.

Airports are much like highways in that maintenancemust be performed at the appropriate time period toprevent unnecessary future costs and obtain themaximum use of the facility or pavement. The Divisionwill continually review airport projects to ensure themaximum effectiveness of funds. Also, the Divisionwill implement a Pavement Management Program to

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promote partnerships at the local level with alternativetransportation, health, schools and safety groups.

Improve safety for those utilizing non-motorized transportation through improvededucation of bicyclists and motorists andenforcement of vehicle code violations bybicyclists.

The section of the Wyoming Driver’s Manualcovering bicycling has been rewritten to better educatemotorists on safe travel habits where bicyclists and

BICYCLE TRANSPORTATIONBICYCLE TRANSPORTATIONBICYCLE TRANSPORTATIONBICYCLE TRANSPORTATIONBICYCLE TRANSPORTATION

In 2002, the Wyoming Transportation Commissionadopted WYDOT’s first Bicycle and PedestrianTransportation Plan. The primary goal of this plan is tocontinue improving the accommodation of bicyclists andpedestrians in Wyoming’s transportation system. Thegoals and action items from the plan are listed below.

Improve accommodation of the various typesof bicyclists and pedestrians within theexisting transportation system.

In order to accomplish this goal, WYDOT’s primaryfocus for bicyclist accommodation will be to provide andmaintain adequate shoulder width for bicyclists onhighway reconstruction projects (4 foot minimum clear,paved area). The primary focus for pedestrianaccommodation will be to provide continuous ADAcompliant sidewalks along both sides of most urbanroadways and bridges. On urban roadway projectsWYDOT will provide wide outside travel lanes ordesignated bike lanes where appropriate.

Institutionalize consideration of the uniqueneeds of bicyclists and pedestrians in projectplanning, design, construction andmaintenance.

WYDOT will continue to provide training on bicycleand pedestrian accommodation and proper facility design toWYDOT planners and engineers. The State Bicycle/Pedestrian Coordinator will continue to be included in theproject plan review process. The Department will continueto provide technical assistance to Wyoming urban areas indeveloping bicycle and pedestrian transportation networksto include on-street facilities and pathways.

Increase the use of bicycling and walking fortransportation in Wyoming.

6CHAPTER Non-MotorizedTransportation

In order to accomplish thisgoal, WYDOT will promoteincreased bicycle use throughpromotion of special bicyclingevents such as Wyoming BikeMonth and Bike-to-WorkWeek. The Department willstrive to improve maintenanceand sweeping of highwayshoulders with priority ondesignated Bicycle Routes andHigh Bicycle-use Areas.WYDOT will continue to

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pedestrians are present. WYDOT will work to improveeducation of motorists regarding the legal status ofbicyclists. A “Share the Road” campaign will bedeveloped to improve education of bicyclists andmotorists regarding the rules of the road and safeoperation in traffic. The Department will work topromote improved enforcement of bicyclist andpedestrian violations and motorist failure to yield right-of-way. WYDOT’s hazard elimination program andSafety Management Committee should includeconsideration of bicyclist and pedestrian hazards. TheDepartment will work to continue and expand itsbicyclist safety education program in Wyoming schools.

Current System DescriptionCurrent System DescriptionCurrent System DescriptionCurrent System DescriptionCurrent System DescriptionMost of the non-interstate rural arterial roadway

miles on the SHS currently provide shoulders ofdesirable width for bicycle travel. By meeting AASHTOdesign policies, roadway improvements result in animprovement in accommodation of bicycle transportation.Funding is currently available for TransportationEnhancement Activities (TEA), which may includeplanning and construction of facilities for bicycletransportation.

Observed TrendsObserved TrendsObserved TrendsObserved TrendsObserved TrendsThe following information is noted as pertaining to

the directions emphasized in this plan and providingperspective to the intent of this plan. Roads providingpaved shoulders can reduce the rate of accidents andincrease utility for all modes of transportation. Morethan 90 percent of needed urban bicycle facilities arealready provided as street networks.

The demand for pathways, desire for exclusivemotorist facilities and inadequate education of manybicyclists and motorists has prompted a perception thatpathways are the preferred type of bicycle facilities.However, studies estimate the probability of an accidentto be about 2.5 times less for bicycling on roadways thanfor bicycling on pathways or sidewalks.

Four-year statistics for a metro area of 70,000population show: 45 percent of all bicycle/motor vehicleaccidents and 80 percent of wrong-way bicycle/motorvehicle accidents involved pathway or sidewalk

bicycling. The majority of bicycle accidents do notinvolve a motor vehicle.

Funding ConsiderationsFunding ConsiderationsFunding ConsiderationsFunding ConsiderationsFunding ConsiderationsReasonable improvement of bicycle transportation

service consumes only a relatively small portion offunding resources. Normal roadway improvementsbenefit bicyclists as well as motorists. In addition,WYDOT may use most categories of federal-aid fundsto modify improvement projects to better servebicyclists and to provide for expanded urban inventory,mapping and planning for bicycle transportation.

PEDESTRIAN TRANSPORTATIONPEDESTRIAN TRANSPORTATIONPEDESTRIAN TRANSPORTATIONPEDESTRIAN TRANSPORTATIONPEDESTRIAN TRANSPORTATION

The first Wyoming Bicycle and Pedestrian Plan wasadopted by the Wyoming Transportation Commission in2002. The plan outlines WYDOT’s strategy to integrateconsideration of the needs of pedestrians and bicyclistsin planning and project development. The plan isintended to provide general principles and guidance forthe Department to provide for and improve non-motorized transportation in Wyoming. The Bicycle andPedestrian Plan also provides guidance for localgovernments in Wyoming for developing their ownbicycle and pedestrian facilities. It is to be considered acomponent of this Long-Range Transportation Plan.

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ObjectivesObjectivesObjectivesObjectivesObjectivesWYDOT incorporates pedestrian considerations

into all applicable existing transportation services andimplements new services when it is reasonable,necessary and effective to do so. This continuousprocess includes updating applicable WYDOT policies,standards and procedures to provide for effectivepedestrian transportation on streets and highways,facilitating widespread, effective pedestrian education,encouraging pedestrian and motorist awareness of roadsharing principles, and assisting in the development oflocal pathways.

Current System DescriptionCurrent System DescriptionCurrent System DescriptionCurrent System DescriptionCurrent System DescriptionBy meeting AASHTO design policies, street and

highway improvements result in an increase inusefulness for pedestrian transportation. Pathwayfacilities continue to be developed. Funding is currentlyavailable for Transportation Enhancement Activities(TEA), which may include planning and construction offacilities for pedestrian transportation.

Observed TrendsObserved TrendsObserved TrendsObserved TrendsObserved TrendsMany existing sidewalks lack continuity, especially

during winter months when snow is plowed fromroadways and stored on them. WYDOT will evaluate asafe routes to school program to improve connectivity oflocal sidewalks, focusing on those providing access toelementary schools.

Funding ConsiderationsFunding ConsiderationsFunding ConsiderationsFunding ConsiderationsFunding ConsiderationsReasonable improvement of pedestrian transportation

service consumes only a relatively small portion offunding resources. WYDOT may use most categories offederal-aid funds to modify street, bridge andintersection improvement projects to better servepedestrians, and to provide for expanded urbaninventory, mapping and planning for pedestriantransportation.

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Railroads have been an important part of theWyoming economy since the City of Cheyenne wasfounded in 1867. The state is currently being served bytwo Class I railroads: The Union Pacific and theBurlington Northern Sante Fe. Unit trains hauling coalhave become a part of the landscape in Wyoming overthe past three decades. Railroads are the primary mode oftransportation for Wyoming coal and soda ash. In 2002,Wyoming mines produced more than 368 million shorttons of coal, most of which is from the Powder RiverBasin in northeast Wyoming. The vast majority of thisproduction was shipped to coal-fired power plants inother states via rail.

The rail industry has been a substantial part ofWyoming’s economic base since before statehood.Railroad employment has contributed to the economicvitality of many Wyoming communities. Currently, thissector employs approximately 3,000 people andprovides a significant source of income for the state.

Although WYDOT does not have regulatoryauthority over railroads, it is in the State’s interest tomaintain an up-to-date rail plan. An update of the StateRail Plan was completed in 2004. This update will beconsidered a component of the Statewide Long-rangePlan. Even though Amtrak passenger service is nolonger provided in Wyoming, the possibility ofconnecting to passenger rail will be evaluated forCheyenne. WYDOT will continue to participate inplanning for light rail operations along the front range ofColorado.

Make available accurate rail informationfor WYDOT customers.

This can be accomplished by updating andmaintaining the State Rail Plan. The Planning Programmaintains an accurate railroad inventory of publiccrossings. This information is available to the public andshould be made available on WYDOT’s web site.

7CHAPTER RailTransportation

Continue grade crossing improvementprogram to improve safety for Wyomingtravelers.Require any new rail crossings of StateHighways to be grade-separated.

Rail crossing safety can be improved by improvingthe hazard rating system for Wyoming’s grade crossingsand continuing the Grade Crossing Protection Programas current legislation permits. The Planning Programwill evaluate rail carriers’ petitions for grade crossingclosures. WYDOT should become more proactiveduring the planning and design phases of projectsadjacent to railroad rights-of-way to ensure safetyconstraints such as adequate storage distances areadhered to.

Participate in Colorado Front Range lightrail planning activities that might benefitsoutheast Wyoming.Evaluate opportunities for intermodaltransfer of containers or TOFC inWyoming.

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Rails to Trails is a national program working topreserve rail corridors for future transportation use.Local communities initiate and maintain the programs intheir areas. The program is eligible for TransportationEnhancement (TE) funding to provide desirablefacilities for non-motorized transportation.

Wyoming has four existing Rails to Trails projects.One trail runs from Shoshoni to Riverton along anabandoned Badwater Rail line. Another trail corridor hasbeen preserved from Casper to Edness/Kimball/WilkinsState Park. Glenrock has a Rails to Trails from the localhigh school to the downtown area. The Ice House SpurTrack Railway runs through the city of Rock Springs.

The U.S. Forest Service and a group of citizens fromLaramie are studying a section of the abandonedWyoming and Colorado Railroad from Albany,Wyoming, to the Colorado state line for rail banking andtrail use.

Current Rail IssuesCurrent Rail IssuesCurrent Rail IssuesCurrent Rail IssuesCurrent Rail Issues

WYDOT Planning will keep abreast of importantissues related to rail transportation at the state, regionaland national levels. Some of the issues are listed below:

In the last decade the Wyoming andColorado Railroad abandoned most of itsline from Walden, Colorado, to Laramie,Wyoming.The Dakota, Minnesota and Eastern (DM&E)Railroad has proposed a new rail line toserve coal mines in the Powder River Basin.The Burlington Northern Sante Fe Railroadis considering a line extension to the tronamines near Green River.The Burlington Northern Sante Fe isconsidering rerouting their line that currentlypasses through F.E. Warren Air Force Base.The City of Cheyenne is studying possiblelocations for a rail-served industrial park.The Tongue River Railroad, a proposal tobuild a new coal hauling railroad alongtheTongue River from Miles City to Decker,Montana, has construction authority fromthe federal Surface Transportation Board. Atthis time it has not yet been built and the issueis currently not active.Increases in rail freight and increased use ofintermodal containers and trailers onflatcars.Participate with CDOT in developing plansto extend Colorado’s light passenger railsystem.

Rails to TrailsRails to TrailsRails to TrailsRails to TrailsRails to Trails

Support Rails to Trails actions that willpreserve railroad rights of way fortransportation purposes.

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8CHAPTER OtherTransportationIssues

A number of key issues have been raised by thepublic through the statewide planning public involvementprocess and internally by WYDOT personnel. Thissection provides a discussion of these issues and policydirection for WYDOT in addressing the issues over thenext few years.

Transportation and EconomicTransportation and EconomicTransportation and EconomicTransportation and EconomicTransportation and EconomicDevelopmentDevelopmentDevelopmentDevelopmentDevelopment

Maintain adequate transportation facilitiesconnecting all urban areas to regionaltransportation networks.Continue the Wyoming Scenic BywayProgram as a tool for local or regionaltourism promotion.Continue to fund the Wyoming IndustrialRoad Program to enable counties torespond to road-building needs, especiallyaccess to new economic development sites.

Discussion of Relevant ResearchEconomic development has been one of the most

important areas of public concern brought out throughthe TransPlan meetings. Citizens are interested in thepossibility of using transportation improvements tofoster local or regional economic development. It isgenerally believed that the impact of highwayimprovement expenditures on economic developmentcan be substantial. However, research generallyindicates that an efficient transportation system,particularly access to a multi-lane facility, is a necessary,but not a sufficient condition for economic developmentto occur.

The direct contribution of transportation improvementexpenditures is positive and significant. WYDOT hasdeveloped a model to estimate employment and incomeeffects of transportation spending. According to the

model, every million dollars spent on highwayconstruction generates an estimated 9.6 direct jobs and7.7 indirect jobs statewide. The same $1 million inhighway construction spending generates a totalincrease in economic output of $1.46 million as thesedollars are spent, earned by others and spent againthrough the multiplier process in the State. The impactof transportation improvement spending on economicdevelopment is much less certain. Economic developmentmay be defined as a real sustainable increase incommunity or regional wealth, e.g. more jobs, higherworker incomes and more economic activity.

Transportation improvement expenditures willaffect a local economy in two ways. The economy will beimpacted directly through the construction expendituresfor labor and materials. This additional income will becirculated through the local economy a number of timesbefore they eventually leak out into a larger economy.The secondary desired effect of transportationimprovements is that the increased efficiency of thetransportation system will spur additional developmentin the local economy. This impact, while not totallyproven, is of great interest to most communities.

Research by Grossman and Levin indicates that goodhighways alone are a necessary but not a sufficientcondition for attracting new industry and retainingexisting industry. Eagle and Stephanedes studied the

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causality relationship between highway improvementsand economic development. They concluded thatincreasing spending on highways does not generally leadto employment increases with the exception oftemporary effects during construction. However, theyalso found that in regional economic centers, highwayspending may cause long term increases in employment.

The significance of the relationship betweenhighway improvements and economic development hasbeen questioned by Baird and Lipsman. Their researchrecognized that changes in local and regional economieswill be promoted by highway system changes butwhether transportation investments cause long-termeconomic development remains in question. Wilson, etal, have found similar results in investigating the samerelationship. They found that while transportationimprovements may have important effects on politicalunity, social cohesion, economic growth, specializationand price stability, precisely opposite effects are equallyplausible.

The current body of research is less than conclusivein terms of defining a prescription for transportationimprovements that will stimulate economic development.Economic impacts are most likely to be positive wheretransportation improvements will increase land valuesand reduce travel time and costs. Economic effects oftransportation improvements may be significant inconnecting smaller urban areas with larger metropolitanareas. Highway and aviation spending also may havepositive long term effects in cities, which are economiccenters of the state. In general, the provision ofadequately maintained highways with sufficientcapacity to minimize congestion will be necessary forWyoming communities to attract new businesses and toallow existing businesses to grow.

Transportation ImprovementsTransportation ImprovementsTransportation ImprovementsTransportation ImprovementsTransportation ImprovementsIdentified in ForecastsIdentified in ForecastsIdentified in ForecastsIdentified in ForecastsIdentified in Forecasts

The economic forecasts prepared by the WyomingDivision of Economic Analysis do not identify anyremarkable shifts in the economy or demography in thenext 10 years. The state’s dependence on employment inthe mineral industry is expected to continue its gradualdecline. However, increases in production of natural gas,coal and trona are expected. Many areas of the state willcontinue to be dependent on tourism or agriculture.

Intrastate NeedsIntrastate NeedsIntrastate NeedsIntrastate NeedsIntrastate Needs

Identify and prepare for the needs ofWyoming’s aging population.

The growing number of the elderly population inWyoming will increase the level of demand for publictransportation services. The number of elderly who nolonger drive will particularly impact the demand fortransit services and non-motorized facilities. WYDOT’sLocal Government Assistance Program will determinewhether the needs of the elderly and those in poverty arebeing served by the existing public transportationsystems in the state. In addition, pursuit of physicalactivities to improve health is expected to increase thedemand for sidewalks and pathways.

Part of the process of developing an effectiveintermodal transportation system will be improvedaccess between modes. WYDOT will need to considerthe possibility of enhancing the efficiency of the statetransportation system by improving terminals and accessto intermodal facilities. This would include access topassenger air, rail and bus service.

Interstate NeedsInterstate NeedsInterstate NeedsInterstate NeedsInterstate Needs

Continue to be involved in regionaltransportation issues and developments.

Wyoming is an important bridge state for thetransport of people and goods (especially east to west).The signing of the North American Free Trade

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Agreement may significantly increase the amount ofnorth to south transportation of people and goodsthrough Wyoming. WYDOT is involved in the RockyMountain Trade Corridor and the Western TransportationTrade Network.

WYDOT Planning will continue to be involved intransportation developments along the Front Range ofthe Rocky Mountains. Access to Denver InternationalAirport will be important to Wyoming’s economy. Also,much of Wyoming has strong ties to the Front Rangeregional economy. WYDOT will participate in planningfor northward extension of Colorado’s light rail system.

WYDOT will continue to coordinate withneighboring states to maintain efficient interstatemovement of people and goods. This existingphilosophy regarding highways will be expanded toother modes such as bicycle transportation. WYDOTwill take an active role in developing and promoting air,rail, bicycle and public transportation.

Cities and CountiesCities and CountiesCities and CountiesCities and CountiesCities and Counties

Continue to provide transportation planningassistance to municipalities and counties.

In 1991, the Joint Transportation and HighwaysInterim Committee conducted a comprehensive statewidetransportation needs study through the consulting firm,DeLeuw, Cather and Company. The study evaluatedneeds and available funding for the state, counties andmunicipalities. The results indicated that WYDOT and

Wyoming’s cities and counties face substantialshortfalls in funding for their roadway infrastructureneeds. Although some cities and counties are in a betterrevenue situation than others, on the whole, city andcounty maintenance responsibilities exceed their fiscalcapabilities. This has frequently lead to requests forWYDOT to take county roads onto the State HighwaySystem. The study indicated that revenue shortageswere forcing deferral of resurfacing needs. Thisultimately results in dramatically increased costs forreconstruction of those roads. Other roads are simplyleft to deteriorate or are minimally maintained withstop-gap methods.

Due to the economic climate of many urban areasin Wyoming, it is often difficult or impossible for thecommunities to finance major reconstruction projects.In fact, it is sometimes difficult for them to provide thelocal matching funds necessary for the use of federalSTPU funds. Most of the streets in these communitiesare quite old and will require major repair orreconstruction during the next 20 years. According tothe DeLeuw and Cather report, the needs ofmunicipalities over both short range (5 years) and longrange (20 years) exceeded the revenues available underthe current tax structure. It is, therefore, important thata funding mechanism is provided for urban areas tomeet their future transportation systems needs. As withthe small urban areas, the non-urban areas (populationless than 5,000) are typically not in a financial positionto meet their transportation needs with local funds.

PipelinesPipelinesPipelinesPipelinesPipelines

WYDOT will continue to work with utilitiesand pipeline companies to facilitate theinstallation and expansion of pipelines.

Pipelines have been an important component ofWyoming’s energy transportation system for almost100 years. The Petroleum Association of Wyoming(PAW) reports that a crude oil pipeline wasconstructed in 1911 connecting the Salt Creek OilField to Casper. According to PAW, 42 companiesoperate more than 13,000 miles of pipelines inWyoming. These pipelines carry natural gas, crude oiland refined petroleum products.

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The Wyoming Energy Commission (WEC) hasidentified the current capacity of interstate take awaypipelines as a constraint to the growth of the industry.Lack of sufficient pipeline capacity also has beenidentified as a factor in the observed price differential ofWyoming natural gas. The WEC has identified potentialpipeline expansions to improve the situation forWyoming natural gas producers. According to the WEC,the Kern River, Southern Trails and Trailblazer pipelineshave expansions under construction in 2002 or 2003.

The WEC has proposed the use of pre-plannedcorridors for pipelines. These would be pre- approved bylocal, state and federal authorities. WYDOT shouldcontinue to work with pipeline companies and utilitieswishing to utilize highway right-of-ways to promoteeconomic growth and development of Wyoming’smineral resources. The independent nature of property owners in

Wyoming has generally caused them to seek local landuse restrictions only when they fear rapid developmentmore than they dread government usurpation of theirproperty rights. In 1975, the Wyoming Legislaturemandated all counties to develop broad land-use plans.Most counties have gone forward from that effort toimplement their land-use plan and pass zoningordinances. However, seven counties have no zoningordinances. Land use patterns can restrain or inducetransportation problems.

Proactive planning in cities, counties and states cananticipate and prevent transportation problems. Bystudying transportation patterns and guiding newhousing and industrial developments, planners candetermine solutions to potential problems before theyarise. Planning includes the analysis of futuretransportation needs, funding requirements and aprocess through which improvements are to bescheduled and completed. This process should includeland-use planning.

Planning efforts may identify corridors needed forfuture transportation facilities. Zoning restrictions canprotect these corridors for future transportation use. Inaddition, zoning can regulate the location and density ofpopulation, industrial development and open spaces.Properly implemented zoning can give people a voice inthe land-use planning and decision-making process.Adequate setback requirements for new buildings canallow capacity improvements to roadways without the

Need for Public EducationNeed for Public EducationNeed for Public EducationNeed for Public EducationNeed for Public Education

Use TransPlan public outreach andinvolvement to educate the public aboutimportant transportation issues.

Use WYDOT’s Web site to educate peopleregarding construction projects and whatWYDOT does and why.

The public should understand importanttransportation concerns that are facing the state and beinformed about the range of possible responses. Aneducated public will be more likely to support efforts toaddress problems before they become critical. Thepublic must be made aware of current and potentialfuture problems related to freight transportation, trafficcongestion, land access, maintaining mobility,construction cost inflation, funding and other key issues.

Land UseLand UseLand UseLand UseLand Use

Encourage Wyoming counties to developland-use plans that require reasonablesetbacks from roadways and limit directaccess to functionally classified roadsand highways.

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difficulty of removing structures. Land-use regulationsthat limit direct access to higher order roadways makes itmuch easier to maintain mobility on these roadways.

Environment and PlanningEnvironment and PlanningEnvironment and PlanningEnvironment and PlanningEnvironment and Planning

The Federal Highway Administration has stated thattransportation planning and project development mustreflect the desires of communities and take into accountthe impacts on both the natural and humanenvironments. Transportation projects are closelyevaluated to identify how they might impact thecommunity, the natural environment, public health andwelfare. WYDOT will begin to identify and evaluatepotential social and environmental impact issues early inthe project planning process.

Although most of Wyoming has not been plaguedwith air quality issues, the Environmental ProtectionAgency designated Sheridan as a non-attainment area forair quality in the mid-1980s as a result of particulatematter. WYDOT is seeking to have this status changeddue to the fact that monitoring has shown the communityto be in compliance since the mid-1990s. WYDOT willcontinue to use proper construction practices to avoid,minimize or mitigate environmental impacts.

Preservation of Wyoming’s view shed and naturalresources will always remain one of WYDOT’s goalsduring the planning and project development processes.

Transportation ResearchTransportation ResearchTransportation ResearchTransportation ResearchTransportation Research

The WYDOT Research Program seeks to discoverinnovative, cost-effective solutions to existingtransportation problems. A primary area of interest ishighway construction and maintenance problems. In thisera of decreasing transportation funding, it is becomingmore critical to better manage transportation assets,particularly highways. The Research Program enablesWYDOT engineers to keep abreast of the latest advancesin asphalt composition, concrete, bridges, girders andconstruction techniques. Some recent research projectshave included landslide stabilization; highway basesettlement problems; animal/vehicle collision mitigation;and the economic impacts of highway construction onbusinesses. In the next few years, the Program will seekways to prevent premature pavement deterioration andextend the service life of highways, improve travelersafety and to limit road closures, particularly thoseresulting from snow avalanches.

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The Wyoming Highway Patrol has a twofoldmission: 1) To promote safety on State highwaysthrough the fair and impartial enforcement of trafficlaws and commercial vehicle regulations. 2) Toprovide efficient and timely response to highwayemergencies.

Field OperationsField OperationsField OperationsField OperationsField OperationsImproving highway safety is paramount to the

Patrol. In order to effectively accomplish its mission,the Patrol must have an appropriate level of staff.Management will coordinate with WYDOT Staff toevaluate the need for increased staffing, along withthe budgetary issues that result. Long-range planningfor Patrol Field Operations will focus on thefollowing goals and objectives to improve highwaysafety:

Reduce motor vehicle crashes by workingin the following areas:

Reduce alcohol-related crashes.Increase seat belt use by all drivers, especiallyWyoming residents.Expand presence of troopers on Wyominghighways.Concentrate additional enforcement in areasexperiencing influx of traffic due to oil and gasdrilling activities.Increase activities by troopers to enforce size,weight, and safety violations on commercialvehicles.Partner with trucking industry to achieve ahigher level of compliance with traffic laws forcommercial drivers.Assess the need to reopen the Baggs POE dueto increased traffic with oil and gasexploration, drilling and production.Continue efforts related to criminalinterdiction as a result of traffic enforcementactivities.

MISSION:

9CHAPTER Highway Patrol

Plan for support and potential growth withindrug detection K-9 program.

Increase authorized Patrol staffing level.Collect data on time spent by troopers oncalls for service in order to assess shortfallsthat may be impacting their ability to fullymeet this demand or to engage in otherfunctions requiring their attention.Review scheduling needs for areas affectedby increased traffic. Some areas mayrequire 24-hour coverage.Provide additional troopers to allow forproactive enforcement and education of themotoring public.

Improve retention of Troopers.Effectively train, develop, and manage newand existing troopers.Evaluate assignments, scheduling,education, and other field options todevelop strategies to optimize our ability toretain troopers, both new and experienced.Identify primary reasons Troopers leave thePatrol.Consider potential housing provisions forofficers in selected remote areas.

Managing Increased Traffic Flow:Work with WYDOT Engineers andMaintenance to develop strategies toaddress the inevitable increase in motorvehicle traffic on our roadways.Develop non-traditional strategies formanaging crash scene congestion and otherhigh density traffic situations.Evaluate the introduction of motorcyclesinto our current fleet for use in heavy trafficareas and special events.

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Support ServicesSupport ServicesSupport ServicesSupport ServicesSupport Services

The Support Services Operation provides vitalservices to the Field Operations Section of the HighwayPatrol. This Section includes dispatch center, evidencecontrol and storage, and equipment maintenance.Planning activities of the Support Services Operationwill focus on the following issues of concern:

I I I I Improve efficiency and technology forDispatch Section:

Address dispatch manpower concerns related toincrease of trooper positions and associatedhiring, training and retention issues of existingpersonnel.Update equipment to keep pace with growthand technological advances. Existing radioequipment is obsolete, phone system does notsupport TDD system, recording methods do notsupport trunked radio system (WYOLINK).Computer hardware and software must remaincurrent to developing law enforcementcommunication systems.Obtain adequate space considering security,functionality and ergonomic issues. Existingcommunications area is not conducive toexpansion (WYOLINK Radio system) orsituations such as critical incident oremergency management. The development of anew ITS building with housing for patroldispatch should be a viable option.

Seek an appropriate level of staffing forEvidence, Equipment and Inventory:

Additional troopers will increase demands forissued equipment, inventory and evidenceservices.

Utilize appropriate new technology:Evaluate options for video tape storage for incarvideo systems. Digital video recordingsystems may resolve some of these issues.Bar coding systems will become a crucialelement for tracking evidence and inventory.Light bar upgrades for patrol cars will benecessary in the near future.

Implementation of a mobile data system usingwireless technology and integrated with theWYOLINK radio system will benefit efficientinformation transmittal and facilitate apaperless reporting system and recordsmanagement system.Building and space needs will be evaluated asthe current equipment and evidence facilitybecomes more congested and additional storageoptions have been exhausted.

Commercial Carrier, Ports of EntryCommercial Carrier, Ports of EntryCommercial Carrier, Ports of EntryCommercial Carrier, Ports of EntryCommercial Carrier, Ports of Entryand Overweight/Oversize Loadsand Overweight/Oversize Loadsand Overweight/Oversize Loadsand Overweight/Oversize Loadsand Overweight/Oversize Loads

Commercial Carrier Troopers enforce both state andfederal commercial vehicle regulations including inspectionof commercial vehicles and their drivers. The Overweightand Oversize Loads Program provides permits and routingfor large commercial vehicles.

Goals for this section are listed below:Continue to develop innovative strategies toaddress the increased commercial motorvehicle (CMV) traffic and enforcement issuesassociated with that increase.Continue to work with FMCSA through theMCSAP grant process to reduce crashes andincrease compliance with Federal MotorCarrier Safety and Hazardous MaterialsRegulations.Continue compliance review and new entrantsafety audit programs.Develop web-based oversize, overweight,registration and fuel permit programs.

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Continue to improve MEET (MobileEnforcement and Education Team).Analyze and develop reasonable personnelneeds strategies.Develop a computerized routing program foroverweight and oversize loads.

Safety, Training and RecordsSafety, Training and RecordsSafety, Training and RecordsSafety, Training and RecordsSafety, Training and Records

The Safety and Training Section of the Patroloversees the training of officers and safety educationactivities for the public.

The emphasis areas of this Section of the Patrolare listed below:

Develop comprehensive recruiting and trainingstrategies to address increased personnelrequirements.

Continue to develop relevant training courses(Desert Snow, Incident Command, HazardousMaterials, Homeland Security, etc.). Utilizeand develop relevant technological resourcesfor delivering training.Develop safety education and publicinformation specialists in each patrol divisionto administer and coordinate such activities ona local level as opposed to centralized effortsfrom headquarters.Continue a proactive role in driver educationin the public sector (schools) as well as withthose in private industry.As the Patrol implements the TRACS recordsmanagement and reporting software, developand formalize a possible new role for dataentry personnel.

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In order to best manage transportation dollars,WYDOT maintains the following Management Systems:Bridge, Pavement and Highway Safety.

The Management Systems focus on data collectionand analysis. WYDOT will continue to evaluate theeffectiveness of its Management Systems and to developimprovement strategies. Outputs from these ManagementSystems will be useful in transportation improvementprogramming decisions. The information provided bythese systems will be incorporated into the needsanalysis and priority rating system used to programtransportation dollars throughout the state.

The purpose of this chapter is to provide a summaryof each Management System. These summaries willreview what has been considered at this point in time. Ifmore detailed information is needed about a particularsystem, contact WYDOT.

BRIDGE MANAGEMENT SYSTEMBRIDGE MANAGEMENT SYSTEMBRIDGE MANAGEMENT SYSTEMBRIDGE MANAGEMENT SYSTEMBRIDGE MANAGEMENT SYSTEM

PurposePurposePurposePurposePurposeThe purpose of the Bridge Management System

(BMS) is to maintain a comprehensive inventory andhistoric condition assessment of the on- and off-systembridges in the state. The BMS aids in assessing theinfrastructure and maximizing the use of funds tomaintain those structures in acceptable condition andrehabilitate or replace those deficient structures.

DatabaseDatabaseDatabaseDatabaseDatabaseThe database of the BMS is centered around

AASHTO’s PONTIS bridge management software.This Oracle database includes all structures in the statethat are located on or over state, city and county ownedand maintained roads that are opened to public travel.The condition of each bridge element, the requiredNational Bridge Inventory data, as well as the Wyomingspecific inventory and project related data are includedin the database. Various scenarios can be executed as adecision support tool to facilitate achieving the BMS’sgoals and objectives.

10CHAPTER ManagementSystems

GoalsGoalsGoalsGoalsGoalsThe goal of the BMS is to assist the bridge program

manager in assessing the condition, prioritizing thereplacement and rehabilitation and developing a multi-year plan to reduce the number of deficient on- and off-system bridges in Wyoming using available funding inthe most efficient and cost effective manner.

ObjectivesObjectivesObjectivesObjectivesObjectivesPreserve the state-owned highway bridgesand structures by ensuring that at least 83percent of those structures on the NationalHighway System and at least 80 percent of thestructures off the National Highway Systemare maintained in acceptable condition basedupon the structure’s sufficiency rating.Improve the transportation infrastructure byidentifying bridge replacement andrehabilitation candidates, prioritizing thesecandidates and facilitating the scheduling ofthese projects to most effectively utilize theavailable bridge replacement funds.Assist local agencies in improving thecondition of their bridge inventories byidentifying bridge replacement candidatesand aiding in prioritizing and facilitating thescheduling of the replacement projects tomost effectively utilize the available off-system bridge replacement funds.

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PAVEMENT MANAGEMENT SYSTEMPAVEMENT MANAGEMENT SYSTEMPAVEMENT MANAGEMENT SYSTEMPAVEMENT MANAGEMENT SYSTEMPAVEMENT MANAGEMENT SYSTEM

PurposePurposePurposePurposePurposeThe purpose of the Pavement Management System

(PMS) is to manage the data and processes necessary forpavement condition analysis, pavement performancetracking, pavement design input and network maintenancemanagement.

Continue to refine and improve the datacollected and the availability of data fromthe PMS.

ManagementManagementManagementManagementManagementWYDOT’s PMS is managed by the Materials

Program. The PMS database is housed in Oracle and ismanaged by the PMS engineer. Data is supplied bycontract, in-house sources and other WYDOT programssuch as Planning and Programming.

OutputsOutputsOutputsOutputsOutputsA project-level report is published annually. This

report summarizes much of the analysis focused onproject selection and strategy recommendation. It is usedby WYDOT District staff as input to the projectprioritization process, to organize sealing priorities, toverify current conditions and to identify pavement safetyconcerns. It also serves as a tool to aid in development ofthe STIP.

Network-level analyses also may be conducted.Network-level analysis summaries have been madeavailable to WYDOT Management Services as input tothe “Wyoming Transportation Facts” booklet. Specialnetwork-level studies also have been completed for theWYDOT Executive Staff for legislative input.

Information collected in support of the PMS also issubmitted annually to the national HPMS for nationwideperformance statistics. Other outputs are specialized forinput to the pavement design process and for long-termperformance statistics.

SAFETY MANAGEMENT SYSTEMSAFETY MANAGEMENT SYSTEMSAFETY MANAGEMENT SYSTEMSAFETY MANAGEMENT SYSTEMSAFETY MANAGEMENT SYSTEM

The Highway Safety Program promotes the safe useof all Wyoming roadways. Basic program responsibilitiesare to reduce crash rates, including fatality, injury andproperty damage only crashes, through engineering,

enforcement and education and training programs.Highway safety maintains statewide traffic crashrecords, evaluates relative crash rates and developsprocedures to reduce crash rates. Additionally, theWYDOT Safety Program administers the FederalSection 402 State and Community grant funds andmaintains the Wyoming Motorcycle Safety Program.

Highway Safety maintains the Wyoming AccidentRecords System, a statewide crash database and theinfrastructure used to disseminate data from thisdatabase. Included in this database is a record of variousfactors of all crashes resulting in property damage valuedat more than $1,000, injury crashes and fatal crashes.Using the Wyoming Accident Records System,Highway Safety generates and distributes:

The annual “Wyoming ComprehensiveReport on Traffic Crashes,”An annual report of travel and crashsummaries for Highway PerformanceMonitor System (HPMS),Annual Crash Concentration reports,The “Annual Highway Safety Report” forthe FHWA,Fatal notifications and monthly statisticalreports to other WYDOT programs and theHighway Patrol,Annual crash summaries to each countywithin Wyoming,Summarizing reports of all crashes onroadways by WYDOT district,Daily recaps of fatalities and fatal crashes,The “Monthly Motor Vehicle Traffic DeathReport” to the National Safety Council,Annual evaluations of federally fundedtraffic safety programs and,The “Wyoming Safety Reporter” newsletter.

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Problem DefinitionProblem DefinitionProblem DefinitionProblem DefinitionProblem DefinitionA SMS begins with a thorough understanding of the

crash problem and the associated characteristics of thedriver, vehicle and highway. The Wyoming crash datasystem contains large amounts of information but is notsufficient to totally define the characteristics of crashproblems required to develop solutions. Roadway,pavement and bridge management systems; highwaydata systems; driver license systems; vehicle datasystems; and emergency medical services data systemsalso provide information. Integrating these data systemsfacilitates crash problem understanding and thedevelopment of solutions.

In addition police officers, emergency care providersand highway maintenance workers, who have been at thescene of many similar types of crashes, may be able toprovide additional insight. For example, police officerswho have investigated many pedestrian accidents on theinterstate system can provide valuable information fromfirst hand experience why the pedestrian was on theinterstate and what the pedestrian was attempting to do.This may lead to the development of specific educationor enforcement strategies to reduce future occurrence assomeone who was in an accident would have a uniqueperspective of what happened.

In conclusion, a number of sources should be used socrash characteristics within the state are well understoodand problems adequately defined. The SMS needs toaddress the following key areas:

What data is needed for specific crashcharacteristics?Why is the data needed and what will it beused for?Is the data available?If the data is not available, shouldinitiatives be taken to enhance the systemsto obtain the data sometime in the future?If the data is available, who will furnish itand where will the data go?

EvaluationEvaluationEvaluationEvaluationEvaluationIt is critical that a solid evaluation design be

incorporated into the SMS plan at the outset. This designwill consider baseline and operational data, responsibility,a collection and analysis process and how and by whomthe evaluation results will be used in future planning.

A key question that needs addressed is, “Is thesolution or strategy producing the desired results?”.

Highway Safety also provides specific reports tostate, corporate and private parties, as well asmaintaining Wyoming’s pertinent data in the FederalFatal Analysis Database. These specific reports candetail crash analysis by: highway system, section androute sign, functional class, federal number, referencemarker, street name, state plane coordinates andintersection analysis. Highway Safety completed anupgrade of its database in 2003. Using this update, theprogram will generate a GIS system that will enhanceWYDOT’s ability to generate crash data from theWyoming Accident Records System and disseminate itfor analysis of Wyoming crashes.

PurposePurposePurposePurposePurposeThe purpose of the Safety Management System

(SMS) is to reduce the numbers of traffic crashes, deaths,injuries, and resulting property damage on all publicroads. Appropriate federal agencies are responsible forfederally owned public roads.

GoalsGoalsGoalsGoalsGoalsIdentify opportunities to improve highwaysafety within the highway program.Collect, maintain and disseminate datanecessary to implement effective highwaysafety strategies, projects and programs.Identify the safety needs of special usersgroups, such as older drivers, pedestrians,bicyclists, motorcyclists, commercial motorcarriers, in the planning, design,construction and operation of the highwaysystem.Identify, investigate and eliminate anyhazardous or potentially hazardous highwaysafety conditions.

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solutions and strategies. Ideally, the result of this processis a set of solutions and strategies that address each majorcrash concern with cost-effective solutions andstrategies.

ImplementationImplementationImplementationImplementationImplementationThe implementation plan will be a flexible document

subject to change based upon unforeseen events and newinformation. A monitoring system will be establishedthat will require each implementing agency to reportimplementation progress and/or problems to the leadagency at agreed upon intervals. A specified format willretain uniformity between all organizations. The SMScommittee will publish overall progress reports. TheSMS committee will establish a periodic meetingschedule after the implementation plan is set into motionto discuss relevant issues not identified in the initialprocess. The SMS committee also will establish a timeframe in which the entire process should be completelyundertaken again.

FundingFundingFundingFundingFundingA primary focus of the SMS is to coordinate existing

highway safety activities within the state by incorporatingbetter planning of the human and fiscal resources. Someadditional data must be collected but it is anticipated thata minimal amount of additional funds will be required toimplement the SMS under the existing constraints andguidelines.

Often, the desired results are expressed in terms ofreduced crash occurrence using before and aftercomparisons. This type of evaluation is somewhat easyto perform but often leads to misinterpretation due tosmall sample size and the effect of other independentvariables not relevant to the solution or strategy that areprimarily responsible for the crash. As an alternative, themeasurement of desired results may be obtained by othermeans. As an example, does a pedestrian safetyeducation program in elementary school result in safercrossing behavior? Evaluating the proportion of childrenwho stop at the curb, look left, right and left beforecrossing can result in an assessment of effectiveness ofthe education effort. Results could be used to restructurethe education program. Similarly, Driving Under theInfluence (DUI) enforcement program could beevaluated by using focus groups of young male drinkingadults to determine if the additional hours ofenforcement are affecting drinking and driving habitsand, if not, why not. Results could be used to improve theway in which DUI programs are deployed.

Ideally, the evaluation phase should produce resultsthat not only determine whether the solution or strategyshould be further pursued but also what enhancements tothe solution and strategy will make it more effective.

Solutions and StrategiesSolutions and StrategiesSolutions and StrategiesSolutions and StrategiesSolutions and StrategiesIdentified crash concerns are compared with

identified opportunities to establish lists of possible

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GoalGoalGoalGoalGoal

Evaluate the future requirements ofWyoming’s transportation system.Utilize the resources available to achievea safe, high quality, and efficienttransportation system.

ProcessProcessProcessProcessProcessFor about the last 25 years, WYDOT has used a

“Needs Analysis and Priority Rating Process” that hasattempted to achieve the above goal. This process requiresinput and cooperation from programs throughout theDepartment and input from the public. The followingparagraphs will describe the existing process. Thatexplanation will be followed by a brief description ofproposed improvements to this process.

The Wyoming Highway Department was reorganizedinto the Wyoming Department of Transportation in1991. Prior to that time, the entire focus of theorganization was on highways. Even today a great dealof the focus is on highways and this will probably remainso into the future. A description of our existing processwill therefore be focused on how highway-relatedproblems and questions are addressed.

Existing SystemExisting SystemExisting SystemExisting SystemExisting SystemUnderstandably, the greatest needs on our highway

system are improvements to the facilities that are alreadyin place and serving the motoring public. Many roadswere built 40 and more years ago and have becomefunctionally obsolete. Pavements and bridges wear outdue to use and the effects of time. As the economyexpands, traffic grows, land use changes and the vehiclesutilizing the road change. Trucks are heavier and moreplentiful while, many more passenger vehicles are on theroad today as well. People’s perception of an acceptable

highway and what they will tolerate also has changed.Improving and maintaining roads already on the StateHighway System now consumes the majority ofavailable funding.

Programming maintains a database with informationconcerning all roads on the State Highway System. Thedata includes horizontal and vertical curvature;pavement and shoulder widths; age; structure width,length and type; traffic; etc. Most of this informationcomes from plans utilized for construction. WYDOTmaintains a list of “tolerable controls.” These controlsare dimensions and attributes (design elements) thatWYDOT believes the motoring public would prefer totolerate rather than spend money to improve.

WYDOT performs data analyses that compareexisting dimensions and attributes to tolerable controls.If the particular road section has a particular element notmeeting the tolerable control for that element then theroad section is identified as having a present need forimprovement. Today there are hundreds of road sectionsrepresenting billions of dollars in needed constructionfunding. Of course, not all can be improved in any oneyear. Therefore, a priority rating process was devised toprovide an objective means of “doing first things first.”

In contrast to the tolerable controls, updated criteria,

11CHAPTERStateTransportationImprovement

Program

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referred to as “design standards” are used whendesigning and constructing new roads. A road meetingdesign standards is much wider, straighter, smootherand safer than one barely meeting tolerable standards.

Every autumn, staff from WYDOT Programmingtake the lists of needs and priorities to each of the fiveoperations district offices in Wyoming. A section bysection review is conducted of each road section. Inputis reviewed from WYDOT districts, Highway Safety,Bridge, Materials, and the public. This review oftenreveals information that was previously unknown to theprogramming staff and results in some changes to thelist of needs and priorities.

At least one public meeting will be held in eachdistrict to provide an opportunity for local officials toprovide input into the programming process. Meetingswill concentrate on planning issues, programmedprojects, funding programs and other district-wideissues of interest to local elected officials within thedistrict. At these meetings, programming staff will givean overview of the STIP development process. Districtstaff will provide a summary of the projects planned forconstruction in their district. Local elected officials willbe given the opportunity to provide informationregarding local projects that should be coordinated withprojects in the STIP and to provide input to the STIP.Input from local officials is considered along with

information from WYDOT management systems, theneeds analysis process, input from other agencies andother relevant information. The consultation meetingswill precede adoption of the STIP by the TransportationCommission. At this point the list of “Needs andPriorities” is finalized for that year and revisions of theStatewide Transportation Improvement Program (STIP)are made.

STIP development is the process of matching highpriority needs with anticipated funding. The variousFederal-Aid and state funding sources must be evaluatedfor each project during the development phase. Certainfunds must be spent on the interstates, others must bespent on rural highways, others on enhancements, safety,maintenance, etc. Other areas within the Departmentalso submit requests for funding. These include requestsfor maintenance pavement overlays, bridge replacement,rail crossing protection etc. These requests are reviewedalong with the “Needs and Priority Rating” list anddecisions matching projects to funding sources aremade. In early April, a Draft-State TransportationImprovement Program is issued. This draft-STIPincludes projects to be constructed in the followingfiscal year as well as preliminary engineering forprojects to be constructed from one to six years later.Some projects due to their unique nature are included forPreliminary Engineering (P.E.) even though their

The WYDOTThe WYDOTThe WYDOTThe WYDOTThe WYDOTTTTTTransportationransportationransportationransportationransportationDistrictsDistrictsDistrictsDistrictsDistricts

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anticipated construction year is even more than six yearsaway. Shortly after the draft-STIP is produced HighwayDevelopment meetings are held. The draft STIP also willbe posted on the WYDOT Web site for public reviewand comment.

The Highway Development meetings bring togetherpersonnel from the District staff, Programming, theFHWA, roadway designers etc. At this time theproposed STIP is thoroughly reviewed as to type ofwork, schedule of work, estimated cost, etc. At theconclusion of these meetings, another draft-STIP isproduced and presented to WYDOT’s Executive Stafffor review.

Between the time of the Highway Developmentmeetings and the time the final STIP is presented to theWyoming Transportation Commission, projects relatingto county roads, city streets, transit, airports,enhancements and others are requested, evaluated andpossibly included in the STIP. In September, the finalSTIP is presented to the Transportation Commission fortheir review and approval. Approval also must beobtained from both the Federal Highway Administrationand the Federal Transit Administration. Once theseapprovals have been obtained, Program Study Reportsare issued along with the Authority for Expenditure(AFE) that authorizes money to be spent on a project(Type “1” P.E.).

The new public involvement policy and localconsultation process will allow more review andinvolvement by the public and local elected officials.The STIP will be available for review on the WYDOTweb site allowing the public to send comments via e-mailed or postal service. GIS applications will allow theneeds review process to utilize current asset managementtrends. District offices will remain one of the mostimportant points of public contact as per DepartmentOperating Policy 17-8.

Type “1” P.E. is the preliminary engineering phasewhere a more intensive examination of the project isconducted than was previously done within the NeedsAnalysis process. This examination is jointly conductedby field and design engineers and is basically a finaldetermination as to what the recommended improvementshould be. A “Reconnaissance Inspection” report is thenwritten and distributed. This reconnaissance report isutilized by personnel within Programming for thewriting of a “Scope Statement.” The Scope Statement is

a document describing the limits of the improvement,recommended improvement type, recommended changesto the Program Study Report, anticipated traffic and cost.The Scope Statement is sent to the Executive Staff fortheir review and approval. The scope is then issued alongwith the AFE for Type “2” P.E. Type “2” P.E. is thepreliminary design phase where all the work necessary toget the project ready for bid letting and construction isperformed.

The Needs Analysis and Priority Rating phase iswhere decisions are made to make facility improvementsand approximately what should be done. The Type “1”P.E. phase is a more detailed examination of what theproject should include. The Type “2” P.E. phase is whenproject design begins and work on the project iscompleted in preparation for contract award andconstruction. This process provides opportunity for manyinterested parties to review, comment and influence thedecision as to what is to be accomplished, through publicmeetings, various agency inputs, economic analysis, etc.

Future SystemFuture SystemFuture SystemFuture SystemFuture System

All systems and processes of course can and should beimproved. Technology changes allow refinements thatearlier were not possible. Emphasis areas change.Weaknesses are discovered, such as planning the futuresystem. Reorganizing from a highway department to atransportation department mandated that more attentionbe given to all modes of travel, in addition to motorvehicles. For Wyoming, there are definite emphases onpavements, bridges and safety.

In the area of pavements, the Materials Program hascontracted with a private firm to automatically gatherpavement data while traveling at highway speed. TheMaterials Program also has done extensive work with apiece of equipment called the “Falling WeightDeflectometer” that has the ability to measure thestrength of the existing surface. In addition, the Programhas been compiling this data into models whereinpredictions and recommendations for pavementimprovements are now being made. Information fromthis Pavement Management System is now beingutilized, as one of the criteria for determining neededimprovements during the Needs Analysis and PriorityRating process.

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There are very few bridges on the State HighwaySystem that are now in a condition that warrantsreplacement based on structural condition alone.Therefore, the Bridge Management System (BMS)provides more direction in regard to bridge maintenancethan it does to replacement. Timely maintenance ofbridges however, has potential for huge savings inconstruction funds. The BMS also provides much betterinformation than what was previously availableregarding bridge maintenance requirements. Thisprovides guidance as to the needed level of funding andthe potential for savings of construction funding.

In comparison to other states, Wyoming has fewaccidents and even fewer deaths due to accidents. Safetyon highways is a high priority for WYDOT. The designstandards employed have been adopted because of acommitment to safety. In spite of the best efforts andintentions, certain areas are identified as having a highaccident history or potential. When these areas areidentified and improvements can be made, thoseimprovements are and will be completed as expeditiouslyas possible. The Safety Management System (SMS)should provide better and more timely information thanwhat has been available in the past. With thatinformation, the Needs Analysis and Priority Ratingprocess will be even more influenced by safety thanbefore.

Many miles of roadway remain on the state systemthat are deficient in width, curvature, pavement type,shoulder width, etc. To do its job properly, WYDOTmust weigh all these competing needs against eachother, establish appropriate funding levels for eachhighway functional classification and treat each of themequitably.

A new concept of bringing all the differentmanagement system inputs into an overall managementhierarchy is Asset Management. WYDOT has embarkedon the path toward Transportation Asset Managementthrough its adoption of Enterprise Resource Planning(ERP). New tools are being implemented that canintegrate all the inputs and allow WYDOT to greatlyenhance its decision-making processes. Fromparticipating in the National Asset Management effort,to incorporating elements of Asset Management that fitWyoming, WYDOT has become proactive in utilizinglimited resources to gain the highest possible return oninvestment.

In the past, society has always looked to ourhighways for solutions to almost any surfacetransportation problem. Perhaps solutions can be foundin other ways. Will a better bus or passenger train systemalleviate the need for highway expenditure? Are thosesystems economical? Can bikes be utilized rather thanautos? Can air travel economically reduce surfacetravel? Will Wyoming be faced with congestion and airpollution problems? The answers are continually beingformulated as additional information becomes available.How will these issues affect the programming process?The complete answer is not known at the present, butthese issues will significantly impact the programmingprocess in coming decades.

The programming process will change. Managementsystems will contribute to the change. ERP will providenew information and allow for new types of statewideanalysis to be done. New information and analysis toolswill undoubtedly lead to improvements in the NeedsAnalysis and Priority Rating process.

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WYDOT’s Local Government Coordination (LGC),Public Transit Section administers a variety of Federaland State funding programs for local transit programsoperating in all twenty-three (23) Wyoming counties.Local matching funds are combined with federal andstate funds to finance operating, administrative, capital,technical assistance and training costs. The WyomingTransit Association (WYTRANS) partners withWYDOT to provide driver and driver-support trainingfor such topics as: passenger service and safety training;drug and alcohol testing; CPR; defensive driving; blood-borne pathogen detection and cleanup; first aid; hazmatawareness; transit security; and fire/collision evacuation.

Current Transit IssuesCurrent Transit IssuesCurrent Transit IssuesCurrent Transit IssuesCurrent Transit Issues

Maintain transit mobility for thetransportation disadvantaged.

Wyoming’s rural population density presents challengesfor those with limited private transportation choices orspecial transportation needs. Transit service providersrecognize these needs and attempt to address them inspite of limited resources. Training and equipment tomeet these special needs will remain a priority at the stateand local levels. Continued support of transit serviceswhich connect rural residents with facilities and servicesavailable in larger communities is essential to maintainquality of life. WYDOT should continue to supporttransit services that provide access to social and healthservices and medical care.

The Transit Program will provide assistance to localproviders to improve efficiency, expand services andmaximize available resources. This will be accomplishedthrough a coordinated approach to reducing costs andimproving trip efficiencies. Through generating newrevenues and consolidating trip types, transit service canpreserve independence and enhance quality of life for awider spectrum of transit clients. Costs associated withtransit services continue to rise. These include insurance,

driver salaries and benefits, fuel, vehicles andmaintenance. Often local transit providers are facedwith the difficult dilemma of cutting services and/orservice schedules, in spite of increasing demand.

Several Wyoming transit providers have initiatedintelligent transportation systems (ITS) into theirprograms. Examples of these ITS applications aredigital dispatching and computerized scheduling ofrides. Many other ITS applications are beingimplemented around the country which could enhanceWyoming transit programs. Such ITS applications asGPS vehicle tracking and smart card fare collectionsystems offer promise of improved efficiencies. TheTransit Program will work with local transit providers todetermine when application of these technologies maybe appropriate and cost-effective.

Long Term Transit IssuesLong Term Transit IssuesLong Term Transit IssuesLong Term Transit IssuesLong Term Transit Issues

Evaluate the proper role for WYDOT inintercity transit.

WYDOT will have to determine its proper role inensuring that intercity bus service is available for thetransportation disadvantaged in Wyoming. The Transit

12CHAPTER Public Transit

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Program will provide support and advocacy for inter-citytransit service. As the Wyoming population ages, thedemand for public transportation connections betweenrural areas and services provided in urban areas will onlyincrease. The elderly will require access to health careservices and facilities, shopping, cultural activities andsocial services.

Serve as a source of information for transitproviders.

The WYDOT Transit Program will monitor transitlevel of service guidelines, costs and available revenuesfrom Federal, State and Local sources. The Program willprovide data and estimates to transit advocacy groupswhich predict the anticipated “real-world” conditionsfacing Wyoming transit providers.

The Transit Program will serve as a clearinghouse forITS advancements for proven technologies that enhancethe efficiency of local transit functions. Advise transitproviders of new approaches and proven ITStechnologies that assist in the delivery of services.

Evaluate opportunities to expand transitservices.

The Transit Program will assess opportunities tocoordinate local transit services with public transportationservice efforts in nearby state parks and national parks.Examples might include: Yellowstone National Park,Devil’s Tower National Park, Hot Springs State Park, Ft.Laramie National Historic Site, and Grand TetonNational Park.

Participate in multi-state planning studies to improveand expand service by connecting Wyoming transitservice with transit and transit-related services inadjoining states. Examples might include: ColoradoFront Range and SE Wyoming commuter services, UtahWasatch Front and SW Wyoming commuter service,Eastern Idaho and Teton County commuter service,Southern Montana and Big Horn Basin/Sheridan-Buffalo commuter service, South Dakota Black Hills andNE Wyoming commuter service, Western Nebraska andSE Wyoming commuter service.

Communicate the economic developmentbenefits of public transit.

Support local, regional and statewide public transitefforts to augment community development andbusiness-ready programs. Transit services cansometimes enhance travel and tourism campaigns aswell. Small business, major employment centers,employees and tourists could benefit from a viableWyoming transit system.

Local Government Assistance ProgramsLocal Government Assistance ProgramsLocal Government Assistance ProgramsLocal Government Assistance ProgramsLocal Government Assistance ProgramsThe following WYDOT programs are administered

through the LGC Office. WYDOT should continue toprovide assistance to Wyoming local governmentsthrough these programs.

IIIIIndustrial Road Program (IRP)ndustrial Road Program (IRP)ndustrial Road Program (IRP)ndustrial Road Program (IRP)ndustrial Road Program (IRP)IRP was created by the Wyoming Legislature in

1951 and has been amended numerous times since thento reflect changing needs. The program intent is toprovide state funding to supplement private industrialfunding for construction of roadways serving industrialfacilities. Such operating facilities benefit the state,county and affected communities as sources ofemployment, tax revenue and property valuation.

State funding provided under this program must bematched at a minimum rate of 50 percent from localsources. Federal and state roadway funds are not eligibleIRP match funding. County Road Construction Funds(RCF) that lose their identity as state funds whentransferred to the county, are an eligible IRP match. Thefollowing changes to the IRP Program should beconsidered:

Expand eligibility for the program tomunicipalities.Consider allowing other road funds to be used forthe local match.Increase the limit of $1 million per county perbiennium.

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Bridge Replacement Off System (BROS)Bridge Replacement Off System (BROS)Bridge Replacement Off System (BROS)Bridge Replacement Off System (BROS)Bridge Replacement Off System (BROS)BROS is part of the federally funded Highway

Bridge Replacement and Rehabilitation Program toreduce the number of deficient off system bridges withthe state. This program applies to bridges under thejurisdiction of a public authority, located on a non-Federal-Aid roadway and open to the public. Thisincludes most city and county owned bridges meeting thequalifications shown below.

An eligible, deficient bridge is defined as a structurethat has a sufficiency rating of 80 or less, is classified asstructurally deficient or functionally obsolete andappears on the FHWA’s Selection List. All eligiblebridges having a sufficiency rating of 80 or less can beconsidered for rehabilitation if that agency has no bridgesthat qualify for replacement funds and the resultingstructure will have an extended service life and meet theminimum design criteria. Those eligible bridges having asufficiency rating of less than 50 qualify for replacementfunding.

Funding for BROS projects is based on an 80 percentfederal share and 20 percent state or local share. Countiesmay use their RCF as the local match share.

Off-system Enhancement Projects (TEAL)Off-system Enhancement Projects (TEAL)Off-system Enhancement Projects (TEAL)Off-system Enhancement Projects (TEAL)Off-system Enhancement Projects (TEAL)

Continue to provide local facilitiesthrough the TEAL Program.

WYDOT has been involved with the federallyfunded Transportation Enhancement Program since1993. Funding goes directly to local sponsorsresponsible for the management of each project. TheWyoming Transportation Enhancement Program hasbeen fashioned into two separate categories:Transportation Enhancement Activities - State (TEAS) -those located on or adjacent to the State Highway System(SHS) and the Transportation Enhancement Activities -Local - (TEAL) for those projects that are sponsored bylocal entities and generally located off or away from theSHS. WYDOT should consider changing the TEALProgram to allow larger projects that would createpositive community impacts.

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ENVIRONMENTAL COMPLIANCEENVIRONMENTAL COMPLIANCEENVIRONMENTAL COMPLIANCEENVIRONMENTAL COMPLIANCEENVIRONMENTAL COMPLIANCE

Continue to comply with environmentallaws and rules through theEnvironmental Services Program.

WYDOT strives to be a good steward of the humanand natural environment. Responsibility forenvironmental protection is distributed throughout theDepartment. Planning, design, construction, maintenance,patrol, facilities maintenance and support functions allhave a role in complying with environmental laws andrules.

The Environmental Services Section assists inensuring that WYDOT’s transportation processescomply with environmental laws and mandates. TheEnvironmental Services Section provides services in sixmajor areas:

Compliance with the NationalEnvironmental Policy ActCultural Resource ProtectionWetlands and Water Quality ProtectionEndangered Species and BiologicalResources ProtectionReclamationAir Quality

In many instances the lead role for complying withan environmental objective resides with sections otherthan Environmental Services. For example, constructionmanagement functions have the lead role in assuringthat measures to mitigate effects to the environmentcontained in project plans are carried out; maintenancefunctions have the lead role in treatment of noxiousweeds; facilities maintenance functions have the leadrole in assuring that waste water and other point sourcedischarges from WYDOT facilities are properlypermitted; human resource support functions have a leadrole in compliance with WYDOT’s Title VI Plan. For

areas where Environmental Services has applicableexpertise, technical assistance is provided to othersections in meeting their environmental protectionobjectives.

Similarly public involvement responsibility isdistributed throughout the Department, with DistrictPublic Involvement Specialists and Public Affairshaving a lead role. Environmental Services has a majorrole with involving the public in the development ofenvironmental documents.

Compliance with the NationalCompliance with the NationalCompliance with the NationalCompliance with the NationalCompliance with the NationalEnvironmental Policy ActEnvironmental Policy ActEnvironmental Policy ActEnvironmental Policy ActEnvironmental Policy Act

Environment Services prepares the prescribeddocumentation to demonstrate compliance of proposedWYDOT projects with the National EnvironmentalPolicy Act (NEPA). The NEPA document is used as a“umbrella” document to demonstrate how WYDOT willaddress a host of environmental laws, mandates andpublic concerns. Because of the array of issues to beaddressed, NEPA documents can become complex andcumbersome. A national effort to streamline theenvironmental process so that environmental protectioncan be achieved more effectively and efficiently isdeveloping through legislative modifications, executivebranch directives and AASHTO initiatives.

13CHAPTERCompliance

Environmental

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Environmental Services will be monitoring theseinitiatives and taking advantage of those efficiencies thatcan be best applied to WYDOT’s processes.

Cultural Resources ProtectionCultural Resources ProtectionCultural Resources ProtectionCultural Resources ProtectionCultural Resources Protection

Prior to construction, WYDOT EnvironmentalServices ensures that surveys for cultural resources areconducted. Upon discovery of cultural resources,appropriate mitigation strategies are developed inconsultation with the State Historic Preservation Officer(SHPO) to ensure protection of the resource.Furthermore, WYDOT Environmental Services consultswith Tribal Governments regarding the protection ofcultural resources on behalf of the FHWA. All dataderived from WYDOT cultural resources surveys areincorporated into the SHPO Geographic InformationSystem to assist with future cultural resourceinvestigations.

These activities are primarily to insure compliancewith the Archeological and Historic Preservation Act.WYDOT Environmental Services also instigatesprovision to comply with other cultural resourceprotection mandates. Most recently an effort to expandtraining of Environmental Services staff and fieldengineers on the provision of the ArcheologicalResources Protection Act has begun.

Wetlands and Water QualityWetlands and Water QualityWetlands and Water QualityWetlands and Water QualityWetlands and Water QualityProtectionProtectionProtectionProtectionProtection

Protection of Wetlands and Water Quality isestablished under the Clean Water Act. WYDOTEnvironmental Services delineates wetlands withinproject corridors prior to design so that the Departmentcan take steps to avoid and minimize impacts to thewetlands. Compensatory wetland mitigation sites aredeveloped for wetland impacts which cannot be avoided.Prior to construction and placement of fill injurisdictional wetlands, WYDOT EnvironmentalServices secures the necessary Section 404 Permit fromthe US Army Corps of Engineers, as well as Section 401Water Quality Certification. To assist in wetlandmitigation efforts WYDOT Environmental Serviceswill continue to explore wetland banking systems.Protocols for wetland banks have been so cumbersome

as to preclude their use in the past but may prove morepromising in the future.

Endangered Species and BiologicalEndangered Species and BiologicalEndangered Species and BiologicalEndangered Species and BiologicalEndangered Species and BiologicalResources ProtectionResources ProtectionResources ProtectionResources ProtectionResources Protection

WYDOT Environmental Services arranges for thenecessary biological assessments of proposedconstruction projects and with the FHWA consults withthe United States Fish and Wildlife Services in order tocomply with the Endangered Species Act. As an aid tothis process Environmental Services has compiledrange maps of where habitat for each endangeredspecies occurs in Wyoming. These maps areperiodically updated to reflect new listing of endangeredspecies. Environmental Services plans to integrate theendangered species habitat maps into a GIS to facilitatetheir use in planning procedures.

In addition, WYDOT Environmental Servicesfacilitates protection of other biological resources onWYDOT projects under a variety of different mandates,such as the Migratory Bird Treaty Act. WYDOT alsoconsults with the Wyoming Game and Fish Departmenton construction projects, and where practical takes stepsto protect the state’s wildlife resources. Thefragmentation of wildlife movement corridors bytransportation facilities has recently become an area ofincreasing concern as evidenced from agency, advocacygroup and public comment. WYDOT has recentlysupported limited research to better define wildlifemovement corridors. In the future, efforts will continueto better define this issue and develop practical andeffective mitigation strategies.

ReclamationReclamationReclamationReclamationReclamation

WYDOT has a long history of successfullyrevegetating right-of-ways following construction.Successful reclamation provides for a visually pleasingtransportation corridor, as well as reducing erosion,sediment and pollution discharge, and reducing spreadof noxious weeds. WYDOT Environmental Servicesprescribes the materials and procedures to be used inreclaiming the right-of-ways. WYDOT EnvironmentalServices also provides technical assistance to the designand field engineers in the development and

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implementation of Storm Water Pollution PreventionPlans in compliance with the National PollutantDischarge Elimination System implemented under theClean Water Act. In the future, WYDOT EnvironmentalServices will continue to monitor and apply advancementsin the propagation of plants well suited to highwayrights-of-ways.

Air QualityAir QualityAir QualityAir QualityAir Quality

Air quality is perhaps the most dynamicenvironmental factor dealt with by EnvironmentalServices, through assistance of a WYDOT planner.

Currently, Ozone, Volatile Organic Compounds (VOC),Oxides of Nitrogen (NOx), Particulate Matter andCarbon Monoxide (CO) are monitored for their effectson air quality. With the upcoming implementation ofnew Particulate Matter and Ozone Standards, the dutiesof WYDOT to control emissions on job sites grows moreand more important. There are currently plans to initiatelong-term studies and monitoring standards statewide tocontrol the impact of WYDOT activities to Wyoming’sair quality. Environmental Services coordinates with theWyoming Department of Environmental Quality onthese issues.

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AADT Annual Average Daily Traffic. Traffic counts adjusted for seasonalvariation, truck axles, etc. to represent vehicle counts for an annual averageweekday.

AASHTO American Association of State Highway and Transportation Officials.The national association of state transportation department officials whichdevelops model policies and standards for transportation facilities.

ADA The Americans with Disabilities Act of 1990. This Act mandatesmajor changes in building codes, transportation and hiring practices to preventdiscrimination against persons with disabilities, not just in projects involvingfederal dollars, but in all new public places, conveyances and employers.

ADT Average Daily Traffic. The average 24-hour volume, being totalvolume during a stated period divided by the number of days in that period.

AFE Authorization for Expenditure.

BIA Bureau of Indian Affairs.

BLM Bureau of Land Management.

BMS Bridge Management System.

CMAQ Congestion Mitigation and Air Quality. A new Federal programwithin ISTEA created to deal with traffic congestion and transportation-relatedair pollution.

CMS Congestion Management System.

DOT Department of Transportation. A cabinet-level federal agencyresponsible for the planning, safety and system technology development ofnational transportation, including highways, mass transit, aircraft and ports.

EIS Environmental Impact Statement.

EPA Environmental Protection Agency.

FAA Federal Aviation Administration.

FBO Fixed Based Operator. This is the primary aviation service providerat an airport, usually a private enterprise.

GLOSSARY

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GLOSSARYFHWA Federal Highway Administration. The agency of the U.S. DOT withjurisdiction over highways. It assists states in constructing highway and roads andprovides financial aid at the local level.

FRA Federal Railroad Administration. A component of the U.S. DOTestablished to coordinate government activities related to the railroad industry.

FTA Federal Transit Administration. The agency of the U.S. DOT withjurisdiction over transit.

FY Fiscal Year.

GIS Geographic Information System. A computerized database in whichinformation is stored and retrieved based on geographic coordinates.

HOV High Occupancy Vehicle, e.g., carpool or bus.

HPMS Highway Performance Monitoring system.

ISTEA Intermodal Surface Transportation Efficiency Act of 1991. Thetransportation bill which provides authorization for highways, highway safety and masstransit through FY 1997.

LOS Level of Service. A term which denotes the operating condition that mayoccur on a roadway. LOS “A” denotes a free flow condition. Level “F” denotes severecongestion.

LRP Long Range Plan. A 20-year forecast plan required at both the metropolitanand state levels.

MPO Metropolitan Planning Organization. The agency designated by theGovernor to administer the federally required transportation planning process in ametropolitan area. The two metropolitan areas in Wyoming are Cheyenne andCasper.

MTIP Metropolitan Transportation Improvement Program. The official workprogram for the Metropolitan Planning Organization. See STIP.

NEPA National Environmental Policy Act. A comprehensive federal law thatrequires analysis of environmental impacts of federal actions and requires the preparationof environmental impact statements for federal actions which areanticipated to have significant impacts on the environment.

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NHS National Highway System. An interconnected system of principal arterialroutes that will serve major population centers, international border crossings, ports,airports, public transportation facilities and other intermodal transportation facilities; meetnational defense requirements; and serve interstate and interregional travel.

NTSB National Transportation Safety Board. An independent federal agency whoseresponsibilities include investigating transportation accidents and conducting studiesand making recommendations on transportation safety measures and practices togovernment agencies, the transportation industry and others.

OPEC Organization of Petroleum Exporting Countries.

P.E. Preliminary Engineering.

P L Metropolitan planning funds.

PMS Pavement Management System.

PTMS Public Transportation Management System.

RTAP Rural Transportation Assistance Program. A Rural transit program throughwhich grants and contracts are given for research, technical assistance, training and relatedsupport services.

SC-CFM State County-County Farm to Market. The State of Wyoming programadministered by the WYDOT which provides partial funding for the construction of farm-or mine-to market roads or other important rural connecting roads.

SHS State Highway System.

SIP State Implementation Plan. State plan to meet the standards of the Clean AirAmendments Act (CAAA).

SLRP Statewide Long-Range Plan. See LRP.

SMS Safety Management System.

SOV Single-Occupant-Vehicle.

STIP State Transportation Improvement Program. The official work plan of theWYDOT showing transportation improvement projects for a specified period of time. Theprogram separates projects by mode, and sequences projects by system. It also shows thelocations, type of work and estimated costs for each project.

GLOSSARY

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GLOSSARYSTP Surface Transportation Program. This Program replaces the formerhighway construction programs with a new flexible block grant program. Inaddition to highway improvements, these funds may be used for non-motorized,transit and enhancement activities.

STPU Surface Transportation Program-Urban.A WYDOT-authorizedprogram which permits a certain portion of STP funds to be used in urbanareas. See STP.

TEA Transportation Enhancement Activity is a new category of activitywhich enhances an existing transportation facility, e.g., bicycle lanes, sidewalks,landscaping, etc.

TIP Transportation Improvement Program. See STIP and MTIP.

UPWP Unified Planning Work Program. A document prepared annually bythe MPOs describing transportation planning activities to be conducted in themetropolitan area during the Federal fiscal year.

VMT Vehicle Miles Traveled. The total distance traveled in miles by allmotor vehicles of a specific group in a given area in a given time period.

WRIR Wind River Indian Reservation.

WYDOT Wyoming Department of Transportation

statewide long-range transportation plan - dot.state.wy.us · provisions in the new federal law....

Documents