Purpose and Need 1

Importance of Purpose and Need 2  Understanding federal requirements for development of P&N statements  Know that a good P&N is the foundation for NEPA and project development  The relationship of P&N to all areas of project development – from project initiation through design and construction - and all other aspects of environmental assessment  Understand the relationship between Purpose and Need, Alternatives and Logical Termini and Independent Utility

3 The Purpose and Need Statement The Purpose and Need Statement:  Clearly identifies and quantifies the transportation problems and other need elements defined for the study area so that independent utility is established  Adequately address logical termini for the purpose of establishing the design, concept and scope of the study/project  Does not restrict the consideration of other reasonably foreseeable transportation improvements within the project’s area of influence  Must be adequate for use in the evaluation of the planning-level conceptual alternatives being considered

4 Federal Law, Regulation, Policy & Guidance Law  National Environmental Policy Act (NEPA) of 1969 Regulations  CEQ regulations to implement NEPA, 40 CFR 1502  FHWA regulations to implement NEPA, 23 CFR 771 Policy and Guidance  FHWA Technical Advisory, T a ( )  Memorandum on P&N ( )  FHWA Guidance on Purpose and Need ( )  FHWA Guidance on the Development of Logical Termini ( )  FHWA Guidance on Linking Planning and NEPA ( )  CEQ 40 most asked questions

5 40 CFR CEQ Definition of the Purpose and Need Statement: The statement shall briefly specify the underlying purpose and need to which the agency is responding in proposing the alternatives, including the proposed action

Purpose and Need - Definition 6  The “Purpose” states clearly and succinctly why the project is being proposed and the intended positive outcomes  The “Need” describes the key problem(s) to be addressed and explains the underlying causes of those problems. The driving force for the project should be a transportation need.  It provides the factual foundation for the statement of the project’s purpose

7 The P&N Defines: The P&N is the critical part of the environmental document that:  Explains to the public and decision-makers why the expenditure of funds is necessary and worthwhile  Establishes the priority of the project relative to other transportation needs/projects in the area  Provides justification that although environmental impacts may be caused by the project, the purpose and need should justify why the impacts are acceptable based on the project's importance

8 Components of the Purpose and Need Statement The Purpose and Need Statement provides:  Definition of transportation problems/objectives  Information on the adequacy of current facilities to handle present and projected traffic (what capacity is needed and the level of service for the existing and proposed facilities)  Information on factors such as safety, system linkage, social demands, economic development, and modal interrelationships, etc., that the proposed project will attempt to address  Establishes logical termini/independent utility  Cornerstone of the Alternatives Analysis  Does NOT discuss solutions  Guides development, evaluation & elimination of alternatives  Coordinate/communicate with stakeholders  Manages controversy  Ensures decisions are legally defensible

Format: Project History 9  Provides a background of previous studies  Illustrates how the project was initiated and what has been done to date  State differences between current study and other studies demonstrating that this does not duplicate them  Legislative mandates  Part of long range plans, MPO studies, etc.  Current status of the study/project

Format: Purpose Statement 10  Clear and concise  Not a description of the project and should not contain solutions/proposed improvements  Typically one or two sentences in length  State the intended positive outcomes Example statement for a widening project (the needs are congestion, crashes & roadway geometrics) The purpose of the proposed project is to improve mobility, safety, and access along a heavily traveled portion of US 23 between Worthington and Delaware by addressing existing transportation needs

Format: Need Elements 11  Existing transportation problem(s)  Data that is factual and can be quantified (use performance measures/analysis), ideally in priority order  Discuss existing, future & desired conditions related to the need  Public/social/economic demands should be acknowledged  Modal interrelationships should be highlighted – that the project will enhance other modes and intermodal relationships or that it will not preclude non-highway modal projects

Need Elements 12 Safety  High crash locations  “Hot Spot” locations  Highway Safety Program candidates

Need Elements 13 Congestion  Traffic Counts  Forecasted traffic (ADT) – planning level traffic, certified traffic  Travel Demand  Level-of-Service (LOS)

Need Elements 14 Roadway Geometrics Before After  Roadway standards  Design standards  Pavement conditions

Need Elements 15 Facility Deficiencies  Sufficiency ratings  Geometric standards and design  Bridge design deficiencies  Bridge conditions

Need Elements 16 Emergency Repairs

Need Elements 17 Economic Development

Format: Goals and Objectives 18  Not a required element – they are optional, should be acknowledged and considered as secondary alternative evaluation factors  Part of a project’s desired outcomes  Examples: improving pedestrian access, developing a gateway, opening up areas for economic development, etc.  May be appropriate to incorporate them into the project design later in the PDP  Often part of a community’s visioning document or master plan

Format: Summary 19  Simply and succinctly - restate the purpose statement  Highlight and summarize the need elements

Logical Termini and Independent Utility Guidance 20 FHWA regulations outline three general principles at 23 CFR (f) that are to be used to frame a highway project in order to ensure meaningful evaluation of alternatives and to avoid commitments to transportation improvements before they are fully evaluated:  Connect logical termini and be of sufficient length to address environmental matters on a broad scope  Have independent utility or independent significance, i.e., be usable and be a reasonable expenditure even if no additional transportation improvements in the area are made  Not restrict consideration of alternatives for other reasonably foreseeable transportation improvements

Logical Termini 21 Logical Termini  Where the transportation problem begins/ends  Rational end points for a transportation improvement  typically major traffic generation points such as intersecting roadways or where traffic volumes change i.e. increase or fall off  Geographic boundaries (county lines, rivers, etc.) are not generally used. If a project ends at a geographic boundary the “project study limits” should be extended to the nearest state or federal system roadway.  Rational end points for a review of the environmental impacts  Generally broader that the strict construction termini

Independent Utility 22 Independent Utility  A project must be able to function on its own without further construction of an adjoining segment  The project is usable (stand alone) and is a reasonable expenditure even if no additional transportation improvements in the area are made  Interaction with intersecting elements  Does not rely on separate actions or preclude future improvements

“Just the Facts” 23  Eliminate FLUFF  Clear and concise  Do not include solutions/improvements  Opinions do not count  Factual and quantified data  Avoid subjective words:  May, maybe, likely, could  Avoid words with legal interpretations  Significant  Segment  Hazardous

End Result 24  Defines existing transportation problem(s)  Presents a fact-based justification for the project focusing on a quantitative verification of the transportation need(s)  Identified need(s) help establish logical termini and independent utility  Creates a baseline to evaluate, eliminate or advance alternatives  Does not restrict consideration of alternatives for other transportation improvements

FHWA Contacts Carmen Stemen, Planning and Environment Specialist FHWA Ohio Division 200 N. High St. Rm. 328 Columbus, OH (614) Noel Mehlo, Environmental Lead FHWA Ohio Division 200 N. High St. Rm. 328 Columbus, OH (614)