udot 2015-2040 long range transportation plan

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2015–2040 Long‐Range

Transportation Plan Transportation in Utah's Rural Areas


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UDOT fully complies with Title VI of the Civil Rights Act of 1964 and related statutes and regulations in all programs and activities. For

more information, or to obtain a Title VI Complaint Form, or call (801) 965‐4384 or see the UDOT website. Communication materials in alternative formats can be arranged given sufficient notice.


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2015 UDOT LONG-RANGE PLAN i

EXECUTIVE SUMMARY

The Utah Department of Transportation (UDOT) develops a long-range transportation plan (LRP) every 4 years to

summarize anticipated transportation system needs for the next 25 to 30 years. The UDOT LRP is the

transportation plan for the rural areas for the state of Utah. Utah’s urban areas are under the planning jurisdiction

of four Metropolitan Planning Organizations (MPOs): Cache Metropolitan Organization, Dixie MetropolitanOrganization, Mountainland Association of Governments, and the Wasatch Front Regional Council. The LRP was

also developed in close coordination with the MPOs and will be compiled with the MPOs ’ regional transportation

plans (RTP) to form the Unified Plan for the state of Utah.

Developing a LRP requires an understanding of Utah’s unique characteristics and challenges. In addition to

addressing future capacity needs for automobiles, the LRP also identifies needs and projects that will improve

Utah’s overall transportation system, facilitate efficient freight movement, enhance roadway safety, and provide

transit service and active transportation systems. UDOT’s consideration of the following issues framed the

assessment of future needs for Utah’s transportation system:

Population Growth – According to a 2012 report by the Governor’s Office of Management and Budget

(GOMB), Utah’s population is expected to reach 4.5 million people by 2040, a substantial increase from 2.7

million in 2010.

Air Quality Concerns – Utah currently has designated nonattainment air quality areas for carbon monoxide

(CO), particulate matter 10 (PM10), and particulate matter 2.5 (PM2.5), and the Utah Department of

Environmental Quality, Division of Air Quality has developed air quality plans (SIP) for these areas.

Freight Movement – Freight transportation plays a major role in supporting regional and national economy.

Freight travels between locations within and outside of Utah on trucks, rail, air, and pipelines. UDOT

functions to keep it moving as efficiently as possible.

Recreation/Tourism – Utah is home to a diverse landscape including 5 national parks, 7 national

monuments, 2 national recreation areas, 44 state parks, and numerous recreational places in between,

including 15 ski resorts.

Energy Development in the Uinta Basin – Oil, natural gas, and other nonconventional energy sources are

plentiful in Utah but specifically in the Uinta Basin. The continued demand for energy in the coming

decades will drive further regional energy development.

Economic Development –The transportation system is an important cornerstone for the state ’s existing and

future economy.

The LRP was developed under the guidance of state and federal legislation, Federal Highway Administration

(FHWA), Federal Transit Authority (FTA), its community partners, MPOs, the public, and UDOT’s three strategic

goals. UDOT’s strategic goals were developed to guide UDOT in all of its activities to meet its transportation

challenges in safety, mobility, and in a state of good repair.


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ii 2015 UDOT LONG-RANGE PLAN

UDOT’s three strategic goals are as follows:

1. Zero Crashes, Injuries, and Fatalities – UDOT is committed to safety and won’t rest until a status of zero

crashes, zero injuries, and zero fatalities is attained.

2. Optimize Mobility – UDOT continuously strives to make the transportation system work better while quickly

and efficiently moving people to their destinations by optimizing operations; improving connections for

transit, biking and pedestrians; and increasing capacity.

3. Preserve Infrastructure – UDOT believes good roads cost less, and through proactive preservation, UDOT

will maximize the value of Utah’s infrastructure investment for today and the future.

The programs and projects identified in the LRP are consistent with UDOT’s three strategic goals and encourage

and promote safety and efficient management, operation, and development of a cost-effective transportation

system that will serve Utah’s mobility and freight needs into the future.

The end result of this long-range transportation planning process is a list of financially constrained projects that

were established with sound financial forecasts. The list is separated into three phases (Phase 1: 2015 –

2024; Phase2: 2025 – 2034; Phase 3: 2035 – 2040). Project revenue assumptions are agreed upon by UDOT, the MPOs, and the

Utah Transit Authority. The results from this process provide a roadmap for future transportation and transit

planning for the state.


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2015 UDOT LONG-RANGE PLAN iii

LIST OF ACRONYMS

AADT average annual daily traffic

CMPO Cache Metropolitan Planning Organization

DMPO Dixie Metropolitan Planning Organization

FAF freight analysis framework

FHWA Federal Highway Administration

FTA Federal Transit Authority

GOMB Governor’s Office of Management and Budget

ISTEA Intermodal Surface Transportation Efficiency Act of 1991

ITS intelligent transportation systems

JPAC Joint Policy Advisory Committee

LOS level of service

LRP Long-range Transportation Plan

MAG Mountainland Association of Governments

MAP-21 Moving Ahead for Progress in the 21st Century Act of 2012

MOU Memorandum of Understanding

MPO Metropolitan Planning Organization

NAAQS National Ambient Air Quality Standards

NHS National Highway System

OCI overall condition index

PFN primary freight network

PM10 particulate matter 10

PM2.5 particulate matter 2.5

PTT public transit team

ROW right-of-way

RPO Rural Planning Organization

RTP regional transportation plan

SAFETEA-LU Safe, Accountable, Flexible, Efficient Transportation Equity Act of 2005

SIP State Implementation Plan

SLCIT Salt Lake City Intermodal Terminal

STIP Statewide Transportation Improvement Program

TEA-21 Transportation Equity Act for the21st Century of 1998

UDOT Utah Department of Transportation

USRAP United States Road Assessment Program

USTM Utah State Travel Model

UTA Utah Transit Authority

VMS variable message signs

VMT vehicle miles traveled

WFRC Wasatch Front Regional Council

WSTA Western States Transportation Alliance


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2015 UDOT LONG-RANGE PLAN v

TABLE OF CONTENTS

1. INTRODUCTION 1

2. TRANSPORTATION PLANNING REQUIREMENTS 2

Federal Requirements 2UDOT Compliance with MAP-21 3

State and Local Requirements 4

State Laws Affecting Transportation Planning 4

Partnerships and Coordination 4

Public Involvement 6

Federal Public Involvement Requirementsfor the Long-Range Planning Process 6

Public Involvement in the 2015 Long-Range Plan 7

3. UDOT STRATEGIC GOALS AND PERFORMANCE MANAGEMENT 10

Zero Crashes, Injuries, and Fatalities 10

Optimize Mobility 11

Preserve Infrastructure 11

4. UTAH’S UNIQUE CHALLENGES 12

Population Growth 12

Air Quality Issues and Improvements 13

Transportation Conformity 13

Status of Utah Air Quality 14

Utah’s Primary Freight Network and Future Demand 14

Additional Challenges for Rural Areas 16

Freight 16

Recreation 16

Connecting Communities 16

Energy Development in the Uinta Basin 16

Small Urban Development 17

Future Trends and Innovations in Transportation 17


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5. ROLE OF LONG-RANGE PLAN IN LISTING PROJECTSAND IDENTIFYING EVOLVING ISSUES 20

6. PLANNING FOCUS AREAS 23

TravelWise 23

Active Transportation 24

Freight 26

Freight Analysis Framework 26

Ongoing and Future Freight Projects 29

Area Planning with Local Government 30

Rural Planning Organization Plans 30

Current and Future Planning Studies 32

7. PROGRAM AREAS 33Public Transit 33

Funding 33

Unfunded Transit Concepts in Development 35

Traffic Operations/Highway Modernization 35

Integrated Corridor Management/Freeway Control 36

Connected Vehicle Initiative 37

Safety/Zero Fatalities 37

Funding 37

Future Funding 38

Goals and Measures 39

Illustrative Projects 39

Asset Management/Maintenance 40

Inventory 40


Funding and Trends 42State Highway Capacity 45


Forecasts 46

Capacity Project Identification 48


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2015 UDOT LONG-RANGE PLAN vii

8. THE 2015 LONG-RANGE TRANSPORTATION PLAN 49

Programmatic Funding Summary 49

Assumptions 49

Revenue Generation Findings 52

Planned Capacity Projects 53

Fiscally Constrained Rural Long-Range Transportation Plan Project List 53

APPENDIX A. Project Fact Sheets and PEL Reports

APPENDIX B. Rural Planning Organization Plans


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Introduction

2015 UDOT LONG-RANGE PLAN

UDOT increased the LRP update cycle from

every 6 years to 4 years to be consistent

with the MPO planning cycle.

1. INTRODUCTION

As the state of Utah’s population increases, the growing travel demand will pose significant challenges to the

transportation system. In order to meet these future challenges, the Utah Department of Transportation (UDOT)develops the Long-Range Transportation Plan (LRP)―which has a minimum 20-year project horizon―every 4 years

This LRP is the guiding document and project list for the planning, construction, and preservation of the state

transportation system within the rural areas of Utah through 2040. The LRP is one of five plans that make up

Utah’s statewide transportation plan or Unified Transportation Plan. The LRP is written in coordination with the

four Metropolitan Planning Organizations (MPO) responsible for the urban areas of Utah. MPO plans are called

regional transportation plans (RTP). The four MPOs are as follows:

Cache Metropolitan Planning Organization (CMPO), which

is responsible for the urban areas of Cache County;

Dixie Metropolitan Planning Organization (DMPO), which is

responsible for the urban areas of Washington County;

Mountainland Association of Governments (MAG), which is

responsible for the urban areas of Utah County; and

Wasatch Front Regional Council (WFRC), which is

responsible for the urban areas along the Wasatch Front

from Box Elder County south to Salt Lake County.

The LRP is written in close coordination with local communities and

within federal and state guidelines to support UDOT’s strategic

goals.

Rural

MPO


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Requirements

2 2015 UDOT LONG-RANGE PLAN

2. TRANSPORTATION

PLANNING REQUIREMENTSUDOT’s long-range transportation planning process is guided byfederal regulation, the Utah State Legislature, and the

requirements of local planning authorities. To strike a balance

between competing needs and to foster collaboration, UDOT

developed a unique transportation planning process and schedule.

The following sections outline the key components that have

influenced UDOT’s planning process.

FEDERAL REQUIREMENTSUtah’s roads and highways are a critical national asset and receive significant federal funding to construct and

operate. As such, Utah’s LRP and the planning process are guided by a series of acts enabled by the US Congress

and signed into law by the president. This legislation specifies goals and objectives for the entire United States

transportation system. It also guides the procedures and content of the planning process as well as ensures equal

benefit of the system to all citizens. The following federal legislation guides MPO and statewide planning efforts:

Federal-Aid Highway Act of 1962 is the authorizing legislation for federal funding for surface

transportation. This act required a continuous, cooperative, and comprehensive (3-C) planning process as a

stipulation for funding.

Transportation Equity Act for the21st Century of 1998 (TEA-21) and the Intermodal Surface Transportation

Efficiency Act of 1991 (ISTEA) introduced an intermodal emphasis for transportation systems and also

established seven planning factors for comprehensive planning efforts.

The Safe, Accountable, Flexible, Efficient Transportation Equity Act (SAFETEA-LU) of 2005 introduced an

additional planning factor to address during the planning process, bringing the total to eight.


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2015 UDOT LONG-RANGE PLAN 3

Moving Ahead for Progress in the 21

st

Century Act of 2012

(MAP-21) reaffirms the 3-C planning process and eight

planning considerations set forth in previous

transportation acts. Furthermore, this act introduces

performance management to the planning process to

guide investment toward projects supporting national

goals.

Other federal laws affecting transportation planning are as

follows:

Title VI of the Civil Rights Act of 1964. This act prohibits

discrimination based on race, color, or national origin.

Specifically, 42 USC 2000d states that “No person in the

United States shall, on the ground of race, color, or

national origin, be excluded from participation in, be

denied the benefits of, or be subjected to discrimination

under any program or activity receiving Federal financial

assistance.”

Section 162a of the Federal-Aid Highway Act of 1973

(section 324, Title 23 U.S.C.). This act requires that there

be no discrimination on the basis of gender. The Federal

Highway Administration (FHWA) considers all assurances

heretofore received to have been amended to include a

prohibition against discrimination on the basis of sex.

Executive Order 12898 (Environmental Justice) Enacted

in 1994, this order directs federal agencies to develop strategies to address disproportionately high and

adverse human health or environmental effects of their programs on minority and low-income populations

Executive Order 13166 (Limited-English-Proficiency) Enacted in 2000, this order directs federal agencies

to evaluate provided services and implement a system that ensures that Persons with Limited English

Proficiency are able to meaningfully access the services consistent with the fundamental mission of each

federal agency without burdening said agency.

UDOT Compliance with MAP-21

Performance management is the hallmark of MAP-21. Under this legislation, each state DOT is required to

establish specific measures and targets that support MAP-21’s eight performance goals and allow the state’s

progress toward reaching those goals to be tracked. These measures are created by the state DOT in coordination

with MPOs and public transportation providers to provide statewide consistency.

SAFETEA-LU Planning Factors

1. Support the economic vitality of the

area, especially by enabling global

competitiveness, productivity, and

efficiency.

2. Increase the safety of the

transportation system for motorized

and nonmotorized users.

3. Increase the security of the

transportation system for motorized

and nonmotorized users.

4. Increase the accessibility and mobility

options to people and freight.

5. Protect and enhance the environment,

promote energy conservation, and

improve the quality of life.

6. Enhance the integration and

connectivity of the transportation

system, across and between modes,

for people and freight.

7. Promote efficient system management

and operation.

8. Emphasize the preservation of the

existing transportation system.


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Requirements


To fulfill MAP-21’s performance-management requirements, UDOT

embarked on a strategic planning effort in conjunction with the

state’s four MPOs. The federal performance-measure requirements

are being further defined. Until the locally identified unified

measures are refined with federal guidance, the 2015 Strategic

Direction and Performance Measur es document establishes the

department’s mission statement and three strategic goals which

provide overall guidance and direction for all of UDOT’s activities.

Specific performance measures are provided to support each of the

department’s goals and federal requirements. Please see Chapter 3

for more information.

STATE AND LOCAL REQUIREMENTSIn addition to federal regulation, UDOT must adhere to the laws

and guidance of the Utah State Legislature and its community

planning partners.

State Laws Affecting Transportation Planning

Utah Code Title 72-1-201(d) and Utah Code Title 72-1-204(5)(a),

among other guidance, directs UDOT to plan, develop, construct,

and maintain state transportation systems that are safe, reliable,

environmentally sensitive, and serve the needs of the traveling

public, commerce, and industry.

Partnerships and Coordination

The state of Utah is unique in its level of collaboration with

planning authorities and stakeholders across the state and,

therefore, approaches long-range transportation planning

differently than other states. Acknowledging that coordinated,

effective projects benefit the entire transportation system, the Utah

State Legislature encouraged Utah’s four MPOs, the Utah Transit

Authority (UTA), and UDOT to collaborate. In response, the six

planning entities entered into a Memorandum of Understanding (MOU) to create a Joint Policy Advisory

Committee (JPAC). The JPAC is a forum for facilitating collaboration between policy makers. Although it was not

required, the JPAC resulted in aligned planning cycles, financial assumptions, growth assumptions, and modeling

approaches. Utah was the first state to compile its statewide and regional transportation plans into one document,

Utah’ s Unified Transportation Plan. Utah’ s Unified Transportation Plan received national recognition from FHWA(source: Regional Models of Cooperation Case Study Series). The 2015 LRP and MPO RTPs will be compiled into the

next Unified Transportation Plan.

“MAP-21 creates a streamlined,

performance-based, and multimodal

program to address the many challenges

facing the U.S. transportation system.

These challenges include improving

safety, maintaining infrastructurecondition, reducing traffic congestion,

improving efficiency of the system and

freight movement, protecting the

environment, and reducing delays in

project delivery.” (FHWA)

http://www.fhwa.dot.gov/planning/regional_models/case_studies/utah/index.cfmhttp://www.fhwa.dot.gov/planning/regional_models/case_studies/utah/index.cfmhttp://www.fhwa.dot.gov/planning/regional_models/case_studies/utah/index.cfmhttp://www.fhwa.dot.gov/planning/regional_models/case_studies/utah/index.cfm


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Local Government

Local public agencies are responsible for planning and

programming transportation improvements and maintenance for

local roads. UDOT has been authorized by FHWA to provide

oversight for local government projects that receive federal aid.

UDOT also works with Local public agencies to incorporate projectneeds that require federal and state funding into the LRP and

Statewide Transportation Improvement Program (STIP) planning

process.

Private Sector

Combined efforts of UDOT and the private sector has brought creativity and efficiency to assist with addressing

complex transportation problems. Through public-private partnerships, UDOT has pioneered new construction

techniques, addressed the economic impacts of construction, and supported visioning studies.

Multistate

UDOT coordinates with neighboring states through several efforts:

I-15 Mobility Alliance – This is an alliance of state and local transportation officials, local and interstate

commerce authorities, port authorities, departments of aviation, freight and passenger rail authorities,

freight transportation services, public transportation service providers, environmental and natural resource

agencies from the states of Arizona, California, Nevada, and Utah. The alliance was selected as one of six

corridor coalitions nationwide to receive $1,250,000 funding under the Multistate Corridor Operations and

Management Program to execute the delivery of the I-15 Dynamic Mobility Project. This project seeks to

obtain, exchange, and disseminate real-time data on all segments of I-15 and create a seamless ITS

backbone from San Diego, California, to the northern Utah border.

Western States Transportation Alliance (WSTA) – The WSTA, also known as the Multistate Highway

Transportation Agreement, is an alliance of the state DOTs from Oregon, Idaho, Montana, North Dakota,

Wyoming, Colorado, Utah, Nevada, Arizona, and New Mexico. The WSTA was designed to foster

collaboration and improve communication between the state legislators, state administrators, and private

industries.

I-80 Winter Operation Coalition – I-80 is a major east-west interstate corridor through the states of

California, Nevada, Utah, Wyoming, and Nebraska. It is a major economic freight and travel corridor that

can better serve the public through improved and coordinated maintenance and traveler information.

Integration and continuity of winter maintenance operations across the United States are needed toprovide consistent traveler information and similar levels of service to achieve a higher degree of boundary

transparency and improved mobility, as seen by the traveling public. These five states have initiated a single

strategic planning effort to reach consensus on how best to link operational processes and data to

maximize winter mobility in the I-80 corridor.


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PUBLIC INVOLVEMENTUDOT has a long history of public participation and citizen

involvement in statewide transportation planning, project delivery,

and customer service initiatives. This participation began in the

1970s when federal mandates outlined the basics of public

involvement in the regional decision-making process. Since then

UDOT has worked to improve these activities in an effort to reach

out to and engage as many members of the public as possible and

engage them in the decision-making process. During this process

the dialogue between the public and decision-makers can develop

a vision for their community, county, or region.

Federal Public Involvement Requirements for the Long-Range Planning Process

Public participation is required by federal transportation legislation and is welcomed and embraced by UDOT.

Transportation legislation requirements increasingly focus on public participation in planning and the decision-

making process. Federal transportation statutes require early, continued, and reasonable public access toinformation and the decision-making process. In regard to statewide transportation planning (23 CFR 450.210),

UDOT must provide the following:

reasonable opportunity for the public comment on the transportation plan;

convenient and accessible public meeting times and locations;

employment of visualization techniques to describe the plan;

electronically available (e.g., Internet) public information;

adequate public notice of public participation activities and comment periods at key decision points;

explicit consideration of public input received during the development of the LRP and STIP;

solicitation and consideration of the needs of those traditionally underserved by transportation;

additional public comment opportunities if the final LRP or the TIP differ significantly from the draft version

reviewed by the public;

periodic evaluation of the effectiveness of the public participation plan; and

a summary of comments received and the disposition of those comments as well as consultation with

federal, state, county, and local planning agencies impacting or affected by the transportation planning

process.


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UDOT TITLE VI COORDINATOR

Utah Department of Transportation

4501 S. 2700 W.

PO Box 141265

Salt Lake City, UT 84114-1265

Phone: (801) 965-4384Fax: (801) 965-4101

UDOT ADA COORDINATOR

Utah Department of Transportation

4501 S. 2700 W.

PO Box 143200

Salt Lake City, UT 84114-3200

Phone: (801) 965-4486

Hearing impaired: 711 or 1-800-346-4128

Title VI and Environmental Justice

Title VI of the 1964 Civil Rights Act was passed to prevent

prejudice against individuals because of race, color, or national

origin. Since its passing, other acts and executive orders have

expanded prohibition of discrimination based on sex, age,

disabilities, income, minority status, and English languageproficiency.

Not only does Title VI apply to specific projects funded by the

federal government, it also applies to state agencies who receive

federal funding. Therefore, UDOT is bound by Title VI in all aspects

of its operations. This means that UDOT transportation projects

completed with federal funds should not disproportionately affect

(positively or negatively) any person. It also requires equal

opportunity to participate in all UDOT planning activities, including long-range transportation planning.

UDOT is committed to fulfilling federal mandates for Title VI and environmental justice throughout the planning

process and project development phases of its work. To view more information regarding UDOT’s commitments to

Title VI, as well as contact information for the UDOT Title VI coordinator or Americans with Disabilities coordinator,

please contact UDOT or visit the UDOT website.

The Importance of Environmental Justice in the Public Participation Process

Effective public involvement in the planning and project development process can alert state and local agencies

about environmental justice concerns. Continuous interaction between community members, transportation and

planning professionals, and decision-makers is critical to successfully identify and address potential environmental

justice issues. UDOT takes seriously the responsibility of ensuring our transportation partners have public

involvement procedures that provide an inclusive, representative, and equal opportunity for two-way

communication while addressing environmental justice concerns.

Executive Order 13166 improving access for Persons with Limited English Proficiency was issued in 2000 to

improve access to federally conducted and assisted programs and activities for persons who, as a result of national

origin, are limited in their English proficiency. It requires federal agencies to ensure that recipients of federal

financial assistance provide meaningful access to applicants and beneficiaries with Limited English Proficiency.

The Americans with Disabilities Act of 1990 provides that “no qualified individual with a disability shall, by reason

of such disability, be excluded from the participation in, be denied the benefits of, or be subjected to

discrimination by a department, agency, special purpose district or other instrumentality of the state or local

government.”

Public Involvement in the 2015 Long-Range Plan

UDOT has a mandated responsibility to include the public during development of the statewide LRP. To comply

with this requirement, UDOT staff and consultants held nearly 30 events across Utah to solicit input on LRP

socioeconomic data, travel-demand model results, and project list prioritization. These events included public

meetings; meetings with elected officials, local government planning staff, and focus groups; stakeholder

outreach; surveys; and social media campaigns.

http://www.udot.utah.gov/main/f?p=100:pg::::1:T,V:3296http://www.udot.utah.gov/main/f?p=100:pg::::1:T,V:3296http://www.udot.utah.gov/main/f?p=100:pg::::1:T,V:3296http://www.udot.utah.gov/main/f?p=100:pg::::1:T,V:3296


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Once the draft project list was compiled it was made available

during a 60-day formal public comment period. During this time

UDOT utilized an online mapping application to solicit public

comments, in addition to accepting comments through email and

more traditional means, such as by letter, fax, and phone. UDOT

also solicited comments on the Draft LRP from land and resource

managers and local government officials across the state through a

comprehensive email campaign.

In addition to traditional methods of accepting comments, UDOT

also made available electronic content on its website

(udot.utah.gov). Content included a video describing the long-range planning process, an interactive mapping

application, static maps, and a draft prioritized projects list. UDOT developed a separate mapping application that

allowed comments to be made within a dynamic map. Comments were also accepted by traditional email using

the [email protected] address. Comments received are available on this interactive map.

Meetings

Meetings were held across the state throughout 2014 and 2015 in conjunction with various associations of

governments meetings, local government conferences, and single-purpose meetings with stakeholders.

Public Notice

Formal public comment was solicited and accepted on the 2015 LRP from March 1 through April 30, 2015. The

effort to collect public comments included official notices in major newspapers with statewide distribution,

including a Spanish-language newspaper. In addition, press releases were sent to every newspaper within the state

of Utah. Comments were also solicited through radio and television broadcasts.

Tribal Coordination

Coordination with Native American tribes included attending a Pow Wow in Cedar City and a Tribal Leader

Meeting in Towaoc, Colorado, to review draft project lists and solicit comments.

Land and Resource Managers and Other Agencies

In March 2015 UDOT began soliciting comments from federal and state agencies that manage lands in Utah.

Letters were sent to the director of each agency asking for comments on UDOT’s proposed projects and how they

might impact management objectives.

The following federal agencies were contacted:

US Department of the Interior, National Park Service US Department of Agriculture, National Forest Service

US Department of the Interior, Bureau of Land Management

US Department of the Interior, Fish and Wildlife Service

US Department of the Interior, Bureau of Reclamation

US Department of the Army, Tooele Army Depot

US Department of Agriculture, Natural Resource Conservation Service

http://uplan.maps.arcgis.com/apps/Viewer/index.html?appid=5cfab24f5bac4d559572fd96cd915fe4http://uplan.maps.arcgis.com/apps/Viewer/index.html?appid=5cfab24f5bac4d559572fd96cd915fe4http://uplan.maps.arcgis.com/apps/Viewer/index.html?appid=5cfab24f5bac4d559572fd96cd915fe4http://uplan.maps.arcgis.com/apps/Viewer/index.html?appid=5cfab24f5bac4d559572fd96cd915fe4


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The following state agencies (divisions) were contacted:

State History

Forestry, Fire, and State Lands

Parks and Recreation

Wildlife Resources

Utah Geological Survey

School and Institutional Trust Lands Administration

Local Governments

In addition to the aforementioned meetings, local governments were also contacted via email with requests to

participate in the public comment period and to share this information with their citizens. These entities included:

associations of governments

regional planning organizations

county governments city governments


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Goals


3. UDOT STRATEGIC GOALS AND PERFORMANCE

MANAGEMENTIn 2014 UDOT refined its visioning and strategic goals to better guide planning efforts. The growing demand onUtah’s transportation system is substantial―the population will double by 2050―and finding ways to meet those

demands while keeping the current system running requires resourcefulness and innovative thinking. By focusing

on its strategic goals, UDOT is able to meet these challenges, improve quality of life, and strengthen Utah ’s

economy. UDOT’s three strategic goals are:

1. Zero Crashes, Injuries, and Fatalities – UDOT is committed to safety and won’t rest until a status of zero

crashes, zero injuries, and zero fatalities is attained.

2. Optimize Mobility – UDOT continuously strives to make the transportation system work better while quickly

and efficiently moving people to their destinations by optimizing operations; improving connections fortransit, biking and pedestrians; and increasing capacity.

3. Preserve Infrastructure – UDOT believes good roads cost less, and through proactive preservation, UDOT

will maximize the value of Utah’s infrastructure investment for today and the future.

In addition to the strategic goals, UDOT has identified several emphasis areas for its efforts:

integrated transportation

collaboration

education transparency

quality

ZERO CRASHES, INJURIES, AND FATALITIESThis is an important mission for UDOT, and so the first strategic goal centers on safety. The Strategic Highway

Safety Plan, required by MAP-21, is adopted by each state to set goals for highway safety. Through UDOT ’s Zero

Fatalities campaign, its partnering efforts with local communities and law enforcement, and by programmatically

identifying safety improvement needs across the state as part of long-range planning, UDOT is helping make Utah

a safer place for its customers.


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UDOT has identified the following performance measures to meet this strategic goal:

Safety – UDOT is dedicated to building and maintaining road facilities that are safe for its customers. UDOT

tracks this performance by looking at traffic fatalities, contributing factors, and workplace safety incidents

measured by annual workers compensation claims.

OPTIMIZE MOBILITYAs Utah grows, the demand on the transportation system will only increase. Transportation needs are not the

same for all regions of Utah. Population growth, freight, traffic demands, safety, air quality, and other factors vary

significantly from place to place in rural Utah. UDOT is committed to finding innovative transportation solutions to

improve the transportation system’s capacity and efficiency into the future. UDOT has identified the following

performance measures listed by category to meet this strategic goal:

Manage System – UDOT manages transportation through a number of systems. UDOT tracks this

performance by estimating traveler information distribution, setting and tracking snow removal targets,

and tracking incident management.

Optimize System – UDOT strives to make the current system more efficient through innovative design

solutions and integrated transportation. UDOT tracks this performance through signal optimization

improvements and managed lanes improvements.

Capacity – Adding capacity to the current transportation system decreases traveler delays. UDOT tracks this

performance measure through capacity increases, travel-delay forecasts, and Transportation Investment

Fund expenditures.

PRESERVE INFRASTRUCTUREUDOT maintains nearly 16,000 lane miles of state highway across Utah, which amounts to a multibillion-dollarinvestment in roads, bridges, and assets. With proper planning, well-timed preservation treatments and other

technologies can greatly extend the life of the roadway and postpone costly reconstruction projects. Preservation

and rehabilitation efforts make efficient use of taxpayer money. UDOT has identified the following performance

measures listed by category to meet this strategic goal:

Pavement Condition – UDOT uses distress surveys and modeling techniques to forecast pavement conditions.

UDOT tracks ride quality for interstates and Level 1 and Level 2 roads (see Asset Management/Maintenance

Section) based on assumed annual funding.

Bridge Condition

–

UDOT inspects all bridges in Utah on a 2-year cycle. UDOT tracks bridge condition, agedistribution, and pavement and bridge expenditures.

Maintenance – UDOT’s Maintenance Division is always seeking ways to proactively approach maintenance

activities. The Central Maintenance Division’s Maintenance Management Quality Assurance Program is used to

identify the performance of 19 state highway assets.

For more information on UDOT’s Strategic Direction and to view performance metrics, please see the 2015

Strategic Direction document.

http://www.udot.utah.gov/main/uconowner.gf?n=19974707633468335http://www.udot.utah.gov/main/uconowner.gf?n=19974707633468335http://www.udot.utah.gov/main/uconowner.gf?n=19974707633468335http://www.udot.utah.gov/main/uconowner.gf?n=19974707633468335http://www.udot.utah.gov/main/uconowner.gf?n=19974707633468335http://www.udot.utah.gov/main/uconowner.gf?n=19974707633468335


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Challenges


4. UTAH’S UNIQUE CHALLENGES

Developing a Statewide LRP requires an understanding of Utah’s unique characteristics and challenges. Future

needs for Utah’s transportation system are determined by looking at growth trends in population, housing, andeconomic development, and gathering local input. In addition to addressing future capacity needs for

automobiles, the LRP also identifies needs and projects designed to improve Utah ’s transportation system as a

whole. This includes projects that facilitate efficient freight movement both within and through the state and

projects that enhance roadway safety or provide multimodal transportation options such as bus systems and

bicycle facilities.

POPULATION GROWTHWhen planning and implementing improvements to Utah’s

existing transportation system, the crucial issue of population

growth and resulting transportation needs must be addressed.

According to a 2012 report by the Governor’s Office of

Management and Budget (GOMB), Utah’s population is expected

to reach 4.5 million people by 2040, up from 2.7 million in 2010

(rural and metropolitan populations based on county population,

not actual MPO jurisdictional areas). While the majority of Utah ’s

population growth will occur within the urban areas of the state,

population growth contributed by the rural areas is nonetheless

significant at just over 450,000. Over this same time period, the

proportion of urban to rural population remains constant at 86

percent to 14 percent respectively.

Source: Utah Governor’s Office of Management and Budget

and Utah Population Estimate Committee.

4%

2%

15%

64%

15%

4%

5%

19%

58%

15%

CMPO

4%

DMPO

8%

MAG

22%

WFRC

52%

Rural

14%

Urban Rural Population Share

1980, 2010, and 2040

2010

2040

1980


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Challenges


Source: Utah Governor’s Office of Management and Budget 2012.

The rate of population growth is another important consideration for transportation planners. The population in

five of Utah’s fastest growing rural counties will double by 2040 and is predicted to increase by half in another five

counties. This rapid growth will carry over to increased demand on existing roadways. Planners must account for

future demand when planning for project over the 25-year time horizon of the LRP. Counties that exceed a

population threshold of 50,000 with 1,000 people per square mile may lead to a creation of new MPO

boundaries.

AIR QUALITY ISSUES AND IMPROVEMENTSLong-range transportation planning must address population growth and society’s value of individual mobility.

One implication of growth, particularly in urban core areas (Weber, Davis, Salt Lake, and Utah Counties), is airquality. Air quality impacts must be addressed in the project planning stage to ensure that regional air quality

emissions do not exceed allowable limits.

Transportation Conformity

Transportation conformity is a way to ensure that federal funding and approval are given to transportation

activities that are consistent with air quality goals. According to the Clean Air Act of 1977, transportation plans,

programs, and projects cannot:

create new violations of the National Ambient Air Quality Standards (NAAQS),

increase the frequency or severity of existing NAAQS violations, or

delay attainment of the NAAQS.

If an area cannot meet the NAAQS, the Environmental Protection Agency designates it as a nonattainment area.

When this occurs, the state is required to develop an air quality State Implementation Plan (SIP) describing how

and when it will attain the NAAQS. The LRP must conform with the SIP ’s goals.

3% 7% 10% 11%

26%

31%

32% 33% 34%36% 38% 39% 42%

59% 59%

77%

89% 89% 96% 97%

120%

151%

0%

20%

40%

60%

80%100%

120%

140%

160%

0

20,000

40,000

60,000

80,000

100,000

120,000

140,000

Rural County Population Change 2010–2040

2010 2020 2030 2040 30 Yr. % Growth


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Challenges


A formal interagency consultation process involving the EPA, FHWA, Federal Transit Administration (FTA), and state

and local transportation and air quality agencies is required for development of state air plans, regional

transportation plans, and regional transportation programs. Regional emissions are estimated based on highway

and transit usage, according to transportation plans and programs. Projected emissions for the plans and

programs must not exceed the emissions limits established by the state’s air quality plans. If projected mobile

source emissions do not conform to the limits defined by the state through emission testing, then programming of

federal transportation funds for new capacity projects is halted in that region until the emissions can be controlled.

Local and state officials are continually considering how projects in these urban areas affect air quality. The plans

and programs they implement include available options for offsetting or reducing motor vehicle emissions, as

required. Examples of mobile source emission controls employed by UDOT include transit improvements, Express

Lanes, signal timing, and bicycle and pedestrian facilities.

Status of Utah Air Quality

Utah currently has designated nonattainment air quality areas for carbon monoxide (CO), particulate matter 10

(PM10), and particulate matter 2.5 (PM2.5), and the Utah Department of Environmental Quality, Division of AirQuality has developed air quality plans (SIPs) for these areas. These areas include Cache, eastern Box Elder, Weber,

Davis, Salt Lake, eastern Tooele, and Utah counties and will directly impact the MPO transportation planning

process. However, the Environmental Protection Agency is proposing to update the 8-hour ozone primary

standard, to protect public health, and the secondary standard, to protect public welfare. Both would be 8-hour

standards set within the range from 65 to 70 parts per billion. This change to the standard could increase Utah’s

ozone nonattainment areas to 11 counties and not just those locations under jurisdiction of MPOs.

The Uinta Basin in rural, northeastern Utah, where the majority of the state ’s oil and gas production occurs, has

had ozone concentrations in excess of current NAAQS during winter inversion periods. This will have implications

for UDOT planning efforts. Because no MPO exists in the Uinta Basin, UDOT is the responsible entity according tothe Transportation Conformity Regulations (as of April 2012)

[Section 93.109 (g) (2) (i)]: “When the requirements of [Section

93.106(d)] apply to isolated rural nonattainment areas, references

to ‘MPO’ should be taken to mean the state department of

transportation.” Hence UDOT will be responsible for conducting

the necessary transportation conformity analysis for a Uinta Basin

nonattainment area, if and when so designated.

UTAH’S PRIMARY FREIGHT NETWORK AND FUTURE

DEMANDFreight transportation plays a major role in supporting Utah’seconomy. As the “Commerce Crossroads of the West,” Utah

offers the business community efficient access to logistics and

transportation services in the western United States. UDOT was

one of the first DOTs in the United States to identify Primary

Freight Network (PFN) highways and target critical infrastructure

investments on those routes. Utah’s PFN highways serve not only

businesses that rely on trucking but also all other modes of freight

transportation.


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Challenges


UTAH’S PRIMARY FREIGHT NETWORK

HIGHWAY MILEAGE

Interstate Routes 937Critical Rural Freight Routes 711

Critical Urban Freight Routes 89Energy Routes 255

TOTAL 1,992

Freight must travel seamlessly along geographic corridors, with a

choice of transportation modes between locations or activity

centers within and outside Utah. To support this, UDOT chose to

focus on a corridor-based strategy by identifying Utah’s PFN

highways. Since Utah’s PFN highways have been defined, projects

located on the PFN are given higher scores for project

prioritization. The corridor approach has allowed UDOT to gain a

better understanding of freight movement within Utah and

transcontinental freight flow through Utah, since specific corridors

serve and support specific economic sectors, freight centers, and

geographic locations. By improving specific corridors, shippers,

receivers, businesses, and industries dependent on those corridors

can be strengthened, further supporting Utah’s and the United

States’ economic competitiveness. Originally defined in 2005 as

Utah’s Primary Freight Routes, Utah has amended the name to be

consistent with MAP-21 and distinguish the corridors betweenhighways and railroads. Utah’s PFN highways consist of interstate

routes, critical rural freight routes, critical urban freight routes,

and energy routes.

Overall, freight value and weight within, from, and to Utah have

increased. From 1997 to 2012, the value of all freight moved

within Utah’s borders increased from $124.5 billion to $207.2

billion, which is an increase of $82.7 billion or 166 percent in 15

years. The weight of freight increased from 168.1 million tons in

1997 to 215.3 million tons in 2012, which is an increase of 47.2million tons or 128 percent in 15 years.

From 2012 to 2040 the value of goods moved within, from, and

to Utah will go from $207.2 billion to $516.7 billion, a 249

percent increase over 28 years. The weight of goods moved will

also increase in that time span from 215.3 million tons in 2012 to

344.8 million tons in 2040, which is an increase of about 160

percent.

With a 211 percent increase in the value of goods moved via truckfrom $136.9 billion in 2012 to a predicted $289.2 billion in 2040

and a 155 percent increase in freight weight moved from 134.0

million tons in 2012 to a predicated 207.3 million tons in 2040, a

change in how the state handles freight can be expected. Having such an increase in the amount of freight moved

within and through Utah will significantly impact the economy of the state both in terms of jobs and

infrastructure.

-

50

100

150

200

250

$-

$50

$100

$150

$200

$250

1997 2002 2007 2012

W

e

g

n

o

T

V

u

n

B

o

U

D

Total Freight Movements

1997

–

2012

-

100

200

300

400

$-

$200

$400

$600

$800

2012 2040

W

e

g

n

o

T

V

u

n

B

o

U

D

Total Freight Movements

2012 and 2040

-

50

100

150

200

250

$- $50

$100

$150

$200

$250

$300

$350

2012 2040

W

e

g

n

o

T

u

n

B

o

U

D

Freight Moved by Truck

Source: Freight Analysis Framework3, Federal Highway

Administration, 2014.

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Challenges


ADDITIONAL CHALLENGES FOR RURAL AREASUtah’s rural transportation needs differ from urban transportation

needs and have additional anticipated system influences. This

section reviews these differences and the potential drivers for travel

demand and network change in Utah. Future chapters address

how these needs are being met.

Freight

As discussed above, Utah plays a vital role in the national freight

network, and rural areas have the bulk of the freight network.

Although vital to the economy and lifeblood of both the nation

and the state, this presents challenges for the rural areas related to

the impact that trucks can have on the transportation system from

a maintenance and capacity perspective. These challenges are

especially apparent on rural main streets and recreational routes

across Utah.

Recreation

Utah is home to a diverse landscape including 5 national parks, 7

national monuments, 2 national recreation areas, 44 state parks,

and numerous recreational places in between including 15 ski

resorts. The access by local, state, national, and international

visitors adds a seasonal variation component to many of the

roadways across Utah.

Connecting Communities

Because of the dispersal of small communities over vast stretches

of land in rural Utah, the transportation system provides a vital

connection to small communities by connecting goods and

services, including emergency and medical services not available in

each small community.

Energy Development in the Uinta Basin

Despite recent drops in the cost of energy, long-term demand for energy is increasing. According to the World

Energy Outlook 2014 published by the International Energy Agency, global demand for oil is predicted to increase

by 37 percent by 2040 and demand for natural gas is likely to grow by 50 percent over the same period.

Oil, natural gas, and other nonconventional energy sources are plentiful in Utah but specifically in the Uinta Basin.

The continued demand for energy in the coming decades will drive further development of energy in the region.

With energy development comes the need for sufficient transportation facilities to support the extraction industry.

This includes not just freighting equipment and materials into the region and capacity to deliver energy out of the

region but also facilities to support the increased demand of the local growing population.


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Challenges


Small Urban Development

Urban development consisting of housing, businesses, parks,

schools, and other built infrastructure is needed to support human

habitation spread across the landscape around the Utah’s

population centers. While the majority of urban development is

occurring in areas along the Wasatch Front and in Washington

County, other areas like Cedar City, Park City, Heber Valley, and

Tooele County are rapidly growing, too. The proximity to current

urban areas may be influencing this growth.

Urban development is an important consideration for long-range

transportation planning because as urban areas spread the

supporting transportation system must also grow. As new

roadways are needed to service new urban development, the

capacity of existing roadways must also expand. The future

transportation system should improve the connections and

carrying capacity from Utah’s existing population centers to the

rural areas of the state. Freight and transit needs to service these

areas should be considered when planning these connections.

FUTURE TRENDS AND INNOVATIONS IN TRANSPORTATIONTransportation demand is always evolving and presents a major challenge to long-range planning. It is imperative

that UDOT understands and accommodates future transportation demands. This is a challenging task: While some

factors affecting transportation demand may or may not follow predictable trends, the results of the trends that

seem to be predictable on transportation are not always obvious. For example, the populations of Utah’s urban

areas are predictably increasing, which would normally increase demand on roadways and public transportation.However, technological advancements, such as automated vehicles and wirelessly connected vehicles, and new

transportation services, such as car sharing, may or may not increase the number of total vehicles on the road.

There are several emerging trends in the transportation sector that have potential to substantively impact the

nature of future travel. The technological advancements mentioned above, demand-responsive technologies, and

socioeconomic trends in millennial lifestyle and travel patterns are just a few examples. These could cause

“disruptive change” in the transportation sector, resulting in shifts that fundamentally alter previous patterns. As

such, they must be considered in any substantive, forward-thinking approach such as that envisioned in this LRP.

Although the effects of these emerging trends on transportation demands is unclear, it is UDOT ’s intent to

anticipate any shifts that may fundamentally alter previous patterns and find methods to eliminate risk.

While the results of these trends are unclear, the method of analyzing them is well established (although rarely

used in the transportation planning context). Unlike conventional transportation models that rely on historical

trends and stated or revealed behavior to forecast future conditions, analytical processes for considering disruptive

change must use methods that employ expert opinion to support policy creation and risk analysis. For the Wasatch

Front Central Corridor Study, UDOT is using the WFRC/MAG and UDOT transportation models to understand

baseline trend behavior and forecast future demand, and other methods to analyze the impact of disruptive

changes to the transportation sector.


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Challenges


As a part of these study efforts, UDOT is tracking the following

emerging trends that have potential to influence future

transportation demand on Utah’s highways.

Labor force participation rate – Jobs recovery brings return

of commuting and other travel.

Driving-age population – Postmillennials come of age, baby

boomers retire but remain active.

Vehicle ownership – Recent urban trend to living car free

and sharing cars, bikes, and rides.

Stricter driver’s licensing regulation – additional states adopt graduated licensing laws further reducing

teen driving.

Fuel cost per mile (all forms of fuel) – Gas prices rise at or above rate of inflation, thus reducing

discretionary driving.

Congestion – With rising congestion, people have limited willingness to spend time traveling and they

reduce travel distances.

Non-automobile modal options – Transit, bike, walk.

Emergent alternative travel options – Demand-response transit, car and bike sharing, and complete streets

shift choices from driving.

Gross domestic product and real income – Rising household income increases driving.

Telecommuting, teleconferencing – Increasingly realistic virtual presence further reduces in-person

meetings and commute travel.

Suburban migration – Recent migration of millennials and baby boomers to urban centers reverses.

Household formation – Economic conditions, social preferences return to traditional household forms and

travel patterns.

Goods and services home delivery – Same-day home delivery becomes widespread, increasing the vehicle

miles traveled associated with deliveries.

Social networking in lieu of travel – Virtual forums increasingly substitute for face-to-face social encounters

and entertainment.

Internet shopping – Home delivery becomes widespread, reducing trips to the store.


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Challenges


Autonomous cars (with driver aboard) – Self-driving cars reduce stress, give freedom to multitask, and

increase acceptance of longer travel times.

Driverless cars (operating unoccupied on public streets) – Unoccupied vehicles are in continuous circulation,

serving on-demand travel needs.

These trends could have impacts on travel demand and transportation networks along with policy implications.


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Role


5. ROLE OF LONG-RANGE PLAN IN LISTING

PROJECTS AND IDENTIFYING EVOLVING ISSUES

UDOT’s Long-Range Plan process analyzes Utah’s rural transportation needs over a 25-year planning horizon by

following a process guided by federal and state laws, UDOT’s strategic goals, Utah’s unique transportation needs,

and the local community. To accomplish this task, UDOT follows a process that begins by identifying goals and

objectives of the overall transportation system for the next 25 to 30 years. Next, a series of forward-looking

modeling tools are used to define future transportation needs with considerations of Utah’s unique characteristics

and challenges. UDOT then works with regional transportation planners and local officials to identify potential

projects that meet forecasted travel demands. Funding sources are identified to estimate total available budget.

Projects are prioritized based on need and funding constraints. Finally, performance management is used to assess

the success of projects relative to goals and objectives. Every 4 years the LRP process recommences, allowing UDOT

to adapt to the ever-changing and increasingly challenging needs of Utah.

As mentioned previously, UDOT has three strategic goals: Zero Crashes, Injuries, and Fatalities; Preserve

Infrastructure; and Optimize Mobility. All projects identified in the LRP are consistent with these goals to

encourage and promote safety and efficient management,

operation, and development of a cost-efficient transportation

system that will serve Utah’s mobility and freight needs into the

future. In keeping with the performance measure requirements of

MAP-21, UDOT will assess the overall contribution of LRP projects

toward meeting its strategic goals. While specific measures have

not yet been finalized by the Secretary of Transportation, they willbe soon. In addition, UDOT has been exploring potential unified

transportation plan performance measures. Once measures are

determined, they will be used to gauge success of the LRP. In 4

years (2019) a new LRP will be published. Until then, UDOT will

evaluate its goals, run new forecast models for population,

economic development, and travel demands, and reassess Utah’s

transportation needs. In this manner the LRP process continually

adapts to evolving conditions.

Identify

Goals and

Objectives

Define Needs

Identify

Potential

Strategies

with Regions

Identify

Funding

Assumptions

Phase Plan

Based on

Prioritization

and Funding

Measure

Performance


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Role


Transportation needs across the state are identified through data analysis, public involvement, corridor studies,

local government coordination, and the direct experience of UDOT region and other division personnel. Identified

needs are matched with specific transportation projects to mitigate the need. These transportation projects are

prioritized according to UDOT’s strategic goals, planning-level project concepts, and input from UDOT region staff,

local government staff, elected officials, and other stakeholders. Costs are estimated for all potential projects and

compared with general revenue projections. Project lists are aligned to anticipated revenues over time.

In this LRP, projects are assigned to one of three phases based on funding availability and anticipated need: Phase

1 (2015 – 2024), Phase 2 (2025 – 2034) or Phase 3 (2035 – 2040). UDOT and the state’s four MPOs have agreed to a

planning-horizon year of 2040. The base year for the LRP for revenue and cost data is 2015. Some projects may be

classified as unfunded based on budget limitations. These projects remain on the LRP project list in case new

funding sources are identified. While not funded, UDOT is maintaining a long-term and historical record of

unfunded and proposed projects to comply with federal requirements for planning and funding, as well as the

National Environmental Policy Act.

After the adoption of the LRP, projects are added to the STIP from those identified in the state 2015 –

2040 LRP(this document) as well as those identified from the MPO’s RTPs. The projects advanced, or programmed, from

these long-range transportation plans to the STIP have the best near-term feasibility and priority for the state and

UDOT region(s), can be linked to a specific funding source, and are consistent with UDOT ’s goals. According to

state regulations, a project added to the STIP must come from an approved LRP or RTP. Newly discovered, high-

priority needs require a LRP amendment before they may be added to the STIP. The STIP uses a 5-year planning

horizon to prioritize projects, but it is reevaluated and updated annually by UDOT.

Projects selected by means of a prioritization process for funding through the STIP are refined by project

development. Projects transition from planning concepts to actual projects as they are vetted by environmental

evaluation and documentation, design, and construction. Once a project moves from long-range plans to thefunded STIP, it is likely to be constructed. However, unanticipated environmental findings, large project cost

increases, or reductions in expected funding can change this.

UDOT is assessing the development of a systematic approach to corridor planning to better define projects and the

implementation plan prior to being listed on the STIP. The process not only includes coordination with partner

agencies in an effort to expand coordination efforts but also links planning processes with National Environmental

Policy Act and statewide environmental processes.

The corridor planning process would allow for early planning-level coordination with the various programs within

UDOT and take all systems into account including safety, infrastructure and signal needs, access plans, seasonalvariation, asset management, transit, active transportation, and others. It would also provide for early

collaboration with the public, resource agencies, and other agencies to better define the corridor needs. The final

product of corridor planning would identify an implementation plan listing various projects, and all information

would be integrated into the environmental process. These products would include goals and objectives for the

corridor, analysis of solutions, elimination of solutions, and potential impacts. They would also document the

public involvement process and make recommendations for future efforts. This approach provides a broad look at

the corridor plan and an early definition of the solutions that meet the context of the overall area.


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Role


Ultimately, the results of early corridor planning would lead to an integrated corridor management plan that

coordinates individual network operations between adjacent facilities and creates an interconnected system

capable of cross-network travel management.


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Focus


6. PLANNING FOCUS AREAS

The UDOT Transportation Planning Division has several planning focus areas that influence project selection,

development, and prioritization. These focus areas are extensions of UDOT ’s strategic goals and help connectUDOT’s LRP to those goals. This chapter focuses on those planning areas: TravelWise, active transportation, freight,

and area planning with local government.

TRAVELWISETravelWise is based on people working together to develop a coordinated transportation program that encourages

alternatives to driving alone and actions that reduce congestion at peak travel times. The program advocates viable

and reliable travel choices including vanpool and carpool,

telecommuting, flexible work hours, bike sharing, car sharing, and

trip chaining, to name a few. The TravelWise program has

established and seeks to develop additional partnerships with the

WFRC, MAG, UDOT departments, area employers, transit agencies,

other MPOs, cities, counties, schools, and other public, private,

and nonprofit agencies that can encourage TravelWise strategies.

In addition to working with planning partners, the program has a

large educational campaign to encourage the public to change

their transportation habits and follow TravelWise strategies.

These strategies include the following:

moving discretionary trips to other less-congested drivingperiods, therefore reducing traffic numbers during peak

hours;

supporting public transit as a vital component to the

transportation system to increase ridership;


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Focus


encouraging active transportation, such as walking and

bicycling, to reduce short-distance vehicle trips;

utilizing the capacity of empty automobile seats through

carpooling, ridesharing, and vanpooling to help improve

the efficiency of the transportation system;

using technology through teleworking, video

conferencing, e-government, Internet shopping, and

related techniques to save travel time;

promoting, educating, and supporting all partners of transportation and land use changes to foster long-

term benefits; and

incorporating strategies in long-range transportation plans.

ACTIVE TRANSPORTATIONUDOT fully supports active transportation. As stated in the Inclusion of Active Transportation Policy:

“It is the policy of the Department that the needs of bicyclists, pedestrians, and other Active

Transportation users will be routinely considered as an important aspect in the funding, planning,

design, construction, operation, and maintenance of Department transportation facilities.”(UDOT

2013)

To help facilitate this policy and bring active transportation to Utah’s roadways, UDOT initiated multiple

approaches. The first approach is a public awareness campaign coupled with community planning called “RoadRespect” designed to promote safety and improve relationships between drivers and cyclists on Utah’s roadways.

The second approach is to develop a statewide bicycle plan that assesses the capacity of Utah ’s existing roadways

to support active transportation, identify gaps in bicycle facilities, and establish a list of projects that UDOT could

integrate into projects.

Road Respect

On Utah’s roads, Utah drivers and cyclists meet in potentially life-threatening situations thousands of times a day.

The Road Respect Program is dedicated to promoting bicycling and improving safety by educating both drivers and

cyclists about the rules of the road and encouraging mutual respect so that everyone gets home safely.

The mission of the Road Respect Program is to:

encourage integrated transportation planning,

support healthy communities,

promote tourism and recreation,

enhance law enforcement through education,

educate system users, and

encourage transit use.


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Focus


A second component of the Road Respect Program is the Road Respect Community Program. This program is

dedicated to providing education on, support of, and guidance for bicycle and active transportation planning for

municipalities across Utah. This program connects communities to resources, training, promotional opportunities,

and information about the latest innovations in active transportation, design, planning, construction, and

operations and maintenance.

The Road Respect Community Program offers collaboration and consultation to assist communities with

developing activities and resources that contribute to an effective bike program that emphasizes safety and

cooperation between cyclists and motorists.

State Bicycle Plan

The State Bicycle Plan, which consists of Region Bike Plans, aids

project managers, designers, and planners with decision making so

they know where efforts and limited funds can make the biggest

impact for bicycle transportation in support of active

transportation. UDOT’s individual regions identified bicycle needs

that were combined to form one statewide plan. The UDOT Region

4 Bike Plan was completed in 2013. The urban areas of Regions 1,

2, and 3 were completed in 2014; and the rural areas of Regions

1, 2, and 3 will be completed soon. The UDOT Region bicycle

planning effort serves and reflects UDOT’s mission to provide a

complete, safe, and efficient transportation system for the state by

identifying gaps in the bicycle network and prioritizing needs. The

plan supports UDOT goals for zero fatalities and optimizing

mobility through the emphasis area of integrated transportation.

Bicycle network gap analysis was performed using standard criteria

established by the FHWA for road conditions, a safety data

analysis, and by the UDOT Regions. The gaps and supporting data

used to create the plan for all regions can be found on UPlan,

UDOT’s interactive mapping tool, in the Region Bike Plan Gallery.

The characteristics of the gaps are detailed in the data attributes

accessed through UPlan maps to assist UDOT planners and

engineers with making decisions for the route.

BICYCLE NETWORK GAPS ANALYSIS

AADT

Existing bike facility locations (bikelanes, trails, etc.)

Existing conditions data (2009 UDOT

study)

Safety (bicycle-motor vehicle collision

locations; high-risk intersections)

Shoulder widths

Speed limits

State bicycle route restrictions

Street parking restrictions

Truck traffic volume

http://www.udot.utah.gov/main/uconowner.gf?n=16746106523524233http://www.udot.utah.gov/main/uconowner.gf?n=16746106523524233http://www.udot.utah.gov/main/uconowner.gf?n=16746106523524233http://uplan.maps.arcgis.com/apps/PublicGallery/index.html?appid=2d1250231f9e4ec184c983b62e0dcd33&group=9e6283b349a5446c95a63bbbc948e1e9http://uplan.maps.arcgis.com/apps/PublicGallery/index.html?appid=2d1250231f9e4ec184c983b62e0dcd33&group=9e6283b349a5446c95a63bbbc948e1e9http://uplan.maps.arcgis.com/apps/PublicGallery/index.html?appid=2d1250231f9e4ec184c983b62e0dcd33&group=9e6283b349a5446c95a63bbbc948e1e9http://uplan.maps.arcgis.com/apps/PublicGallery/index.html?appid=2d1250231f9e4ec184c983b62e0dcd33&group=9e6283b349a5446c95a63bbbc948e1e9http://www.udot.utah.gov/main/uconowner.gf?n=16746106523524233


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FREIGHTAs the “Freight Crossroads of the West,” Utah relies on an efficient

and complex freight transportation network. Utah’s freight

transportation system plays a critical role in fostering economic

vitality and competitiveness in regional and global markets. Trucks

move the majority of freight in Utah, but all modes of freight

transport are important. In 2015 UDOT completed its first Utah

State Rail Plan since 1996. Further, UDOT is developing the Utah

Freight Plan, its first ever freight plan (2015), to ensure that the

transportation system in Utah supports and enhances trade and

sustainable economic growth.

Freight is defined as any good, product, or raw material carried by a commercial means of transportation, which

includes highway, rail, pipeline, air, and water. The activities involved in the management of how and where

freight moves is defined as “logistics.” Logistics is becoming a significant challenge due to the growing need for

freight services resulting from increasing consumer demand in Utah and increasing congestion, as well as theability of transportation infrastructure to support such demand. In light of existing market forces, fuel prices, and

other factors that will affect the cost of moving goods, freight planning, and especially truck freight, is an

important component of the statewide and metropolitan planning process.

Freight Analysis Framework

The Freight Analysis Framework (FAF) consists of FHWA data compiled from multiple sources to outline freight

movements for all states. The data provides an estimate for the tonnage, value, and ton miles for a number of

factors, including origin, destination, mode, and commodities. UDOT has chosen to use value and weight by

transportation mode for forecasts. The data used to determine the past trends and forecasts for 2040 are given in

increments of 5 years from 1997 to 2012.

Note: All FAF data in this document referring to the value of freight is based on the 2007 constant of the US dollar

and is in millions of US dollars unless otherwise stated. All data referring to the weight of freight are in thousand

tons unless otherwise stated.

$0

$50,000

$100,000

$150,000

$200,000

$250,000

$300,000

Rail Pipeline Truck Multiple Modes Air

M

i

o

Freight Value by Type (2007 Dollars)

1997–2040

1997 2002 2007 2012 2040


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Truck

According to FHWA’s Highway Statistics 2008, the most recent data provided on this subject, Utah has the highestpercentage of truck traffic in the United States at 23 percent; the average is only 12 percent nationwide. Utah is

home to more than 15,000 trucking companies. As a result, Utah businesses have quick access to competitive

trucking services to meet any logistical needs across the continent. Utah has almost 6,000 miles of state highways

and interstates that link the state with all major regions of the western United States and Canada including I-15, I-

70, I-80, and I-84. As discussed in Chapter 4, UDOT identified Utah’s PFN (highway), which consists of interstate

routes, critical rural freight routes, critical urban freight routes, and energy routes.

In 2012 more freight was moved by trucks in Utah than all other modes combined. By weight trucks carried 63

percent, and by value trucks carried 58 percent. And according to FAF data, trucks are expected to move almost 40

percent more freight tonnage by the year 2040, from 129 to 205 million tons. This represents an enormousincrease in the numbers of trucks on Utah’s state routes (S.R.) and interstate highways in the coming years.

Rail

The railroad industry continues to play a vital role in the movement

of freight to, from, and through Utah. Freight handled by rail in

Utah is either originating or terminating in Utah or passing

through the state en route to or from the West Coast and the

Midwest.

There is only one rail freight intermodal facility in Utah―the Salt

Lake City Intermodal Terminal (SLCIT), which is used exclusively by

Union Pacific Railroad. Only Union Pacific Railroad provides rail

intermodal freight service (truck trailers and containers) in Utah.

The SLCIT is located adjacent to Salt Lake City’s rapidly growing west side industrial and distribution warehousing

area and is proximal to the I-80, I-215, and S.R. 201 freeways, all of which are on Utah’s PFN highways.

A facility for new automobiles is maintained by the Union Pacific Railroad at its Roper Yard, located about three

miles south of downtown Salt Lake City adjacent to the I-15, I-80, and S.R. 201 freeways. This facility handles all

shipments of new automobiles and vehicles by rail for northern Utah and a multistate area.

0

50,000

100,000

150,000

200,000

250,000

Rail Pipeline Truck Multiple Modes Air

T

a

Freight Weight by Type (Tons)

1997–2040

1997 2002 2007 2012 2040

http://www.fhwa.dot.gov/policyinformation/statistics/2008/ps1.cfmhttp://www.fhwa.dot.gov/policyinformation/statistics/2008/ps1.cfmhttp://www.fhwa.dot.gov/policyinformation/statistics/2008/ps1.cfmhttp://www.fhwa.dot.gov/policyinformation/statistics/2008/ps1.cfmhttp://www.fhwa.dot.gov/policyinformation/statistics/2008/ps1.cfmhttp://www.fhwa.dot.gov/policyinformation/statistics/2008/ps1.cfm


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Water

There is no freight moving on Utah waterways.

Air

There are two air cargo facilities located at the Salt Lake City

International Airport―

one at the south end and one at thenorthwest end. Sixteen cargo carriers handled more than 328

million pounds of air cargo and airmail in 2014. The main air

cargo carriers in Utah include FedEx, UPS, Delta, and Southwest.

Among the 46 public use airports in Utah, eight of them have air

cargo service.

Multiple Modes

This service includes shipments by multiple modes and parcel delivery services, the US Postal Service, and couriers;

it is not limited to containerized or trailer-on-flatcar shipments. The FAF3 and US Census Bureau Commodity Flow

Survey use multiple modes and mail rather than intermodal to represent commodities that move by more than one

mode. Intermodal typically refers to containerized cargo that moves between ship and surface modes or betweentruck and rail. Repeated efforts to identify containerized cargo in the Commodity Flow Survey have proved

unsuccessful. Shipments reported as multiple modes can include anything from containerized cargo to coal

moving from mine to railhead by truck and rail to harbor. The “mail” component recognizes that shippers who use

parcel delivery services typically do not know what modes were involved after the shipment was picked up.

Pipelines

By weight, pipelines are the third largest mode of shipments in Utah. Pipelines deliver their products reliably, safely,

efficiently, and economically. Pipelines in Utah carry crude oil, refined petroleum products, and solid material in

slurry form (phosphate rock) that would be transported by trucks or trains if pipeline infrastructure was not

available. On average, approximately 2,200 trucks per day are kept off Utah’s highways because of these systems.

There are five oil refineries located between Salt Lake City and suburban Woods Cross, Utah, to the north. Also in

this same energy corridor are the Chevron and Pioneer Pipeline Terminals for petroleum products arriving from out-

of-state sources. All of these facilities provide a multimodal connection inasmuch as they combine rail freight

service with pipelines and trucks.

Commercial Motor Vehicle Safety

UDOT’s stated goal of zero crashes, injuries, and fatalities applies to all roadway users. Commercial freight

transport makes up nearly a quarter of all vehicles traveling on Utah ’s roadways. The following figure shows the

number of commercial motor vehicle crashes statewide and on the PFN. While there is a slight increase statewide,

there is a slight decrease in commercial motor vehicle crashes on the PFN. Since 2009, UDOT has beenconstructing capacity improvements, climbing lanes, passing lanes, and long-term truck parking on Utah’s PFN

highways. While more time is needed for review, it appears that capacity and other projects on the PFN are helping

to improve safety.

AIR CARGO SERVICE AIRPORTS

Buck Davis Field (Price)

Canyonlands Field (Moab)

Cedar City Regional Airport

Logan-Cache Airport

Salt Lake City International Airport

St. George Municipal Airport

Vernal Regional Airport

Wendover Airport

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Source: Traffic and Safety, 2015. CONFIDENTIAL: These data, as well as all UDOT safety program information, are protected

under 23 USC 409.

Ongoing and Future Freight Projects

Over the last decade UDOT has conducted extensive outreach to and research with the trucking industry into issues

such as:

long-term truck parking,

identifying and constructing capacity improvement proj

udot 2015-2040 long range transportation plan

Documents