2040 statewide transportation plan: 2015 statewide strategic transportation plan

January 2016

GEORGIA DEPARTMENT OF TRANSPORTATION STATEWIDE PLAN

PLAN OVERVIEW
T R A N S P O R TAT I O N IN GEORGIA

be continually evaluated and periodically updated as appropriate, typically every four to five years. The most recent Georgia long-range transportation plan, the 2005-2035 Georgia

This plan, for the first time,

Georgia's transportation system drives Georgia's economy, the success of our communities, and our quality of life. Continued investment in improving transportation and mobility within the State is essential to improving and maintaining Georgia's economic standing and retaining our high quality of life.

Statewide Transportation Plan, was completed and approved in January 2006.
State legislation2 requires a transportation investment plan with specific investment strategies identified to advance economic growth in the State. This Statewide Strategic Transportation Plan (SSTP) must be updated

combines the traditional
transportation analyses of the

Federal legislation1 requires states to have a multimodal long-range transportation plan

every two years with ongoing monitoring of key strategies through an annual performance-

federally required

that outlines general investment policies over

monitoring progress report. The most recent

long-range

a minimum 20-year plan horizon. Long-range

SSTP was completed in September 2013.

1

Statewide Transportation Plans (SWTP) must

transportation

1 Moving Ahead for Progress in the 21st Century (MAP-21), Title 23 U.S.C., https://www.fhwa.dot.gov/ map21/legislation.cfm.

2 Statewide Strategic Transportation Plan, OCGA 32-2-41.1.

Our transportation system drives Georgia's economy, the success of our communities, and our own quality of life.

plan with the strategic business case

In 2014 , Georgia was named the #1 state in the U.S. for Business.
CNBC, 2014.

Of all 50 states, Georgia ranks #16 in the cost of living.
U.S. Chamber of Commerce's Enterprising State's Report, 2012.

Georgia consistently ranks highly for having some of the smoothest roadway pavement in
the country.
Federal Highway Administration.

Georgia ranks as the #3 top place in the world
to make films.
P3 Magazine.

for transportation investment required by the State.

Plan Overview

The 2040 SWTP/2015 SSTP documented herein meets all state and federal transportation planning requirements for Georgia. This plan, for the first time, combines the traditional transportation analyses of the federally required long-range transportation plan with the strategic business case for
HIGHWAYS
BRIDGES
2
TRANSIT
FREIGHT RAIL
AIRPORTS
BIKE/PEDESTRIAN
MARINE PORTS

transportation investment required by the State. The 2040 SWTP/2015 SSTP provides a comprehensive look at transportation issues and investment needs in Georgia now and through the year 2040. It forecasts available funding for transportation investment and develops a set of strategic, financially

constrained investment recommendations to
meet the transportation demands of the State.3
3 Additional technical material developed as part of the 2040 SWTP/2015 SSTP is included in: Appendix A (Study Methodology), Appendix B (Literature Review), Appendix C (Data Collection), Appendix D (Existing Conditions ), Appendix E (Revenue Forecast), Appendix F (Economic Forecast), Appendix G (Future Deficiencies), Appendix H (Economic Impact), and Appendix I (Public Involvement).

123,546
center line miles

15%
owned by GDOT

supporting
215 million
vehicle miles traveled (VMT)

14,739 bridges
(including culverts)
15 urban fixed-route
transit providers
4,844 miles
of active track
104 publicly
owned airports
14 state
bike routes
3 ports
in operation

55 percent
owned by GDOT

supporting
152 million
bus riders in 2012

supporting
193 million
tons of goods in 2010

includes
9 commercial
service airports

supporting
47 million
commercial passengers in 2012

supporting
75,000+ bicycle/
pedestrian commuters in 2010
supporting
27 million
tons of goods in 2010

GEORGIA DEPARTMENT OF TRANSPORTATION STATEWIDE PLAN

EXISTING TRANSPORTATION SYSTEM

Highway System -- Over 123,000 center-line miles5 on

Freight Rail -- Over 6,000 track miles of freight rail,

Georgia's transportation system is planned

the Georgia highway system. Of total

4,844 of which are active, supporting

and constructed by several agencies across

center line miles, approximately 31,000

the movement of 193 million tons of

the State, including the Georgia Department

(25 percent) are part of the Federal Aid

goods in 2010.

of Transportation (GDOT), individual cities and

System (FAS) and eligible for federal

-- 301 track miles of passenger rail in

counties, and port, airport, and transit authorities.

transportation funding; this includes both

Georgia, supporting two rail corridors

GDOT shares responsibility for planning and

GDOT-owned and non-GDOT-owned

and just under 568,000 passengers in

programming transportation funding with

facilities. Approximately 18,000 miles

Georgia in 2011 to 2012.

16 Metropolitan Planning Organizations (MPO) in urbanized areas across the State. GDOT has the responsibility to maintain and operate the roadways which it owns in urban areas.

are both GDOT-owned and on the FAS (15 percent of total center line miles).
-- 14,739 bridges (includes culverts), 55 percent of which is GDOT owned.

Airports
-- 104 publicly owned airports, 9 of which offer commercial services, with over 2 million general aviation flights and

While the 2040 SWTP/2015 SSTP focuses on the

-- Supports over 215 million vehicle-miles

73,000 commercial flights annually.

transportation assets owned and operated by

traveled (VMT) on the FAS; 90 percent

-- The 9 commercial service airports

3

GDOT, it touches upon all of the transportation

of the vehicle-miles on the FAS are on

supported 47 million enplaned

facilities in the State which include roadways,

GDOT-owned roads.

passengers in 2012.

public transportation, railroads, airports, marine ports, and bicycle/pedestrian facilities. It presents statewide economic and transportation demand forecasts given expected population and

Transit
-- Fifteen urban fixed-route transit providers, supporting over 152 million riders in 2012 (bus and rail).

Ports -- Three ports currently in operation, moving over 27 million tons of goods in 2010.

employment growth and assesses the current and future performance of all these modes over the plan horizon.

-- Comprehensive network of service providers in rural areas of the State supporting rural human services

Bicycle Network -- Fourteen state bike routes, totaling over 2,900 miles, 70 percent on GDOT-

The existing transportation system in Georgia is

mobility needs.

owned state routes, supporting just over

comprised of the following:4

75,000 bicycle commuters in 2010.

4 Detail on existing infrastructure and network performance by mode is included in Appendix D (Existing Conditions).

5 Mileage is reported as center line miles; this excludes the double counting of directionally separated roads, and roads that are designated with multiple signage.

Plan Overview

ANTICIPATED GROWTH TRENDS
Transportation investment, population and employment growth, and economic growth are

10.7 In 2010,
Georgia was home to approximately

million people

The share of the

closely linked. As infrastructure investments are made the results are experienced not only by the

total population

traveler in improved travel time, reliability, comfort and safety, but also in the economy through

accounted for by persons 65 and

improved productivity and growth. Economic factors such as employment, industry structure, and population all influence transportation demand in return. The performance and condition

2010 2040

4.9 By 2040,
the State will likely add another

million residents

older will almost

of the transportation system in Georgia will directly impact these relationships that drive economic

transportation system will, accordingly, need to grow and adapt to accommodate the needs of

4

double from

growth in the State. A summary of population, employment, and economic growth projections

new residents. By 2040, the State is forecast to have a population of approximately 15.6 million

10 to 19 percent,

developed as part of the 2040 SWTP/2015 SSTP is provided in the following section.6

compared to around 10.7 million in 2010.

while the share of working age population will decrease from 61 to 55 percent.

POPULATION GROWTH. Georgia has ranked as one of the fastest-growing states populationwise in the nation for many decades, and continues to add people at a higher rate than the national average. Population growth did slow during 2008/2009, but continued despite an actual decline in employment. Georgia is projected to continue to grow faster than the national average although the rate of growth will taper compared to recent decades. The State's

Along with continued strong population growth, the age distribution of Georgia's population also will change. As the baby boom generation retires, many people will move to southern and southwestern areas of the nation and Georgia will see a significant increase in the number of residents age 65 and older. The share of the total population accounted for by persons 65 and older will almost double from 10 to 19 percent, while the share of working age population will decrease from 61 to 55 percent. The transportation system will

have to be modified in many ways to reflect this

6 Detail on economic growth projections is provided in Appendix F (Economic Forecast).

changing demographic make-up.

GEORGIA DEPARTMENT OF TRANSPORTATION STATEWIDE PLAN

EMPLOYMENT GROWTH. Several major industry employment trends taking place today in

forecast to have approximately 7.7 million jobs compared to approximately 5.2 million jobs in 2010,

Figure 1. Performance-Based Planning Process

Georgia are expected to continue over the next

an increase of approximately 2.5 million jobs.

Goals/Objectives

30 years. Job growth will continue to be dominated by the service sector which is forecast to grow

ECONOMIC GROWTH. The pace of Georgia's

Establish Goals and Objectives. A goal is a general statement of purpose that reflects

economic growth is a key determinant of

a long-term desired end to a

by over 100 percent between 2000 and 2040. This sector includes business and professional

transportation demand as higher economic growth

transportation issue. An objective is an intermediate step to reach a goal, and is

results in increased employment and production

more focused and more easily measured.

occupations (i.e., engineering, architecture,

of goods and services, which in turn places more

administrative, and managerial), healthcare,

demand on the transportation system. Gross State

recreation, and education. Manufacturing is

Product (GSP) measures the total production

Performance Measures

forecast to continue its decline of recent years due

Select Performance Measures.

to increased foreign competition, with a forecast

of goods and services in a state. The State's overall average annual growth rate between 2000

Performance measures are used to monitor progress toward

drop in employment of 42 percent. Actual output

achieving a goal or objective.

and 2040 is forecasted to be 2.3 percent. Among

may increase, however, as manufacturers continue

the fastest growing sectors are transportation,

to implement new technologies to improve

productivity. The construction industry, currently the

communications, and utility industries, which are

Target Setting

5

expected to grow even faster than services. The

Identify Targets. Targets are a

second largest in the State behind only services, will continue to grow as commercial and residential

service and finance, insurance, and real estate (FIRE)

quantifiable point in time at which all or a portion of a goal is achieved.

industries will continue to account for the largest share

structures are needed to meet population and

of the economy. The government and manufacturing

employment demand. By 2040, the State is

sectors are forecast to have the largest declines.

Allocate Resources

2.5 By 2040,
Georgia's Economy will likely add

million jobs

PERFORMANCE-BASED

2010 2040

PLAN DEVELOPMENT

Allocate Resources. Programming projects in a plan based on their demonstrated performance in the context of transportation goals and objectives.

to the
5.2million jobs
Georgia had in 2010

Performance measurement is a critical element of a strategic planning process. It provides a level of transparency and objectivity that is critical for plan development and implementation. Performance-based planning takes place within an overall Performance Framework, depicted in Figure 1 (page 5).

Measure and Report Results
Measure and Record Results. An analysis to indicate how close an organization is to
achieving its long-term transportation goals. This is often used to track plan implementation, rather than tracking
performance of individual projects.

Plan Overview

The transportation community has become

At the state level, in Georgia, the SSTP requires

decisions in the context of a constrained funding

increasingly proactive in implementing

a strategic, performance-based plan focused on

environment. Federal requirements focus on state

performance-based planning over the last

economic growth. It guides state transportation

transportation plans that advance a core set of

decade. Recent, significant transportation

decisions across three investment categories:

transportation goals, and adherence to a set of

funding issues have served as an immediate driver for developing more structured and

1. Statewide Freight and Logistics.

corresponding performance measures and targets to monitor and report progress towards those

transparent performance-based decision-

2. People Mobility (excluding Atlanta).

goals. To date, statewide practice has focused

making processes. In addition, MAP-21

3. People Mobility in Metro Atlanta.

on defining goals and performance measures to

has advanced performance-based federal highway aid, i.e., allocation of federal dollars

An integrated set of investment objectives

evaluate plan recommendations, with much less

based on demonstrated performance of projects in relation to seven national goal areas Safety, Preservation, Congestion Reduction, Reliability, Freight/Economic Growth, Environment, and Project Delivery. According

that focus on system preservation, core

transit operations, improved roadway operations, and strategic roadway capacity expansion that is coupled with improved

te

and National
Relieve

Transportation
Improve

Go

Congestion

Reliability

6

to the U.S. Department of Transportation

land use planning have

Sta
tatewide Strategic T

als
nvestment Categorie

(U.S. DOT), MAP21 "transforms the policy and programmatic framework for investments... the cornerstone of [which] is the transition to a performance and outcome-based program." MAP-21 requires U.S. DOT to develop performance measures for pavement

shaped the transportation investment philosophy of the State since the inception of the SSTP in 2010. An annual progress report monitors execution

Maintain and
Preserve

ransportation Plan I

People Statewide

Mobility Freight

Outside

and

Atlanta Logistics

Improve Freight and Economic Development

conditions, bridge conditions, injuries and fatalities, traffic congestion, on-road mobile

of SSTP strategies and reports system

People Mobility in Metro Atlanta

s

S

source emissions, and freight movement. States

performance across key

will invest resources in projects to achieve

investment programs.

individual targets that collectively will make progress toward these national goals.7

Both federal and state initiatives

Improve Environment

Improve Safety

advance performance-based

7 Note that Project Delivery is addressed via the 2015 SSTP Execution Framework; reference the 2015 Statewide Strategic Transportation Plan section (page 66).

planning principles, encouraging more strategic, results-oriented investment

GEORGIA DEPARTMENT OF TRANSPORTATION STATEWIDE PLAN

emphasis on execution of the plan through targetsetting and reporting. The SSTP has focused primarily on defining specific investment objectives needed to advance economic growth, as well as tracking and monitoring implementation of the key investment strategies through the annual progress report.

INVESTMENT NEEDS
HIGHWAY
A primary mission of GDOT is to plan, maintain, and operate Georgia's highway system. This responsibility includes the portion of the highway system that GDOT owns, as well

85% Non-GDOT-Owned Roads

The 2040 SWTP/2015 SSTP provides a unique opportunity to leverage both federal and state performance emphasis areas, with MAP-21 providing the broad framework and

as administering U.S. DOT funds for those portions of the highway system that it does not own, but which are eligible for federal transportation funding (Figure 2, page 8).

12.8% Eligible for Federal-Aid

transportation goals for the plan and the SSTP

There are over 123,000 center lane miles of

providing the unique state-defined objectives

public roads in Georgia, of which GDOT owns

needed to advance those goals. The integrated

only 15 percent. However, the GDOT-owned

15%

planning effort also enables a consistent set of

roads are among the most heavily traveled

GDOT-Owned Roads

7

targets to be established between the SWTP

in Georgia, including the Interstate Highway

and SSTP to ensure GDOT is monitoring and reporting plan implementation and associated performance impacts in a standardized and

System and large portions of the National Highway System (NHS), and FAS.

100% Interstate Highway System

complementary manner.
The 2040 SWTP/2015 SSTP provides a

Investment needs for the Georgia highway system are summarized across five highway programs pavement, bridges, roadway capacity, roadway operations, and safety. For each highway program a performance curve is

95% National Highway
System (NHS)
58% Roads eligible for funding under the Federal-Aid Highway System

unique opportunity to leverage both federal

included which presents performance impacts in the year 2040 given average annual funding levels applied over the plan horizon. Average

Source: Cambridge Systematics from GDOT's 2008 HPMS Submittal.

and state performance emphasis areas.

annual funding levels used to build out each performance curve are capped by investment need, not by available revenue; i.e., the point in

Investment Needs 8

Figure 2. Federal-Aid Highways in Georgia
Source: Westats and Cambridge Systematics, 2040 SWTP/2015 SSTP.

GEORGIA DEPARTMENT OF TRANSPORTATION STATEWIDE PLAN

the curve where performance flattens reflects

For the 2040 SWTP/2015 SSTP, the current

reporting, it is applied as part of 2040

a maximum funding level at which investment

and future physical condition of existing

SWTP/2015 highway needs analysis to ensure

needs are cost-effectively addressed. These

roadway pavements in Georgia was

federal performance monitoring requirements

curves facilitated an understanding of future

measured using the Highway Economic

are addressed.

performance within each program given varying levels of investment. The performance curves

Requirements System-State (HERS-ST) model8 which reports forecasts of future pavement

A well-maintained

served as the backbone for an investment tradeoff analysis that was conducted as part of 2040 SWTP/2015 SSTP development to

condition using the International Roughness Index (IRI). The IRI measures ride quality; i.e., pavement smoothness. It does not

roadway can reduce overall vehicle operating

inform a set of performance-based, financially constrained investment recommendations (refer to the Recommendations section of this plan, pages 58-59).

measure the condition of the entire pavement structure. The IRI is used to report pavement conditions annually by each state to the Federal Highway Administration (FHWA) through the Highway Performance Monitoring

costs for personal and commercial vehicles and support roadway

PAVEMENT

System (HPMS)9 which serves as a primary

safety through the

The pavement condition of Georgia's transportation network is vital for resident's day-to-day

input into HERS-ST performance projections. At the state level, GDOT measures pavement

prevention of potholes

9

activities and the State's commerce. Pavement condition can affect highway users in several

quality through a combination of both ride quality and condition through its COPACES

and uneven lanes.

system. Because the IRI is the expected

ways. Pavement roughness affects not only

performance measurement method to be

A minimum performance threshold of 95 percent

riding quality, but also fuel consumption, tire wear,

used for purposes of MAP-21 performance

of the Interstate Highway System in fair or

maintenance and repair costs, and in the end, the

better condition (as measured by IRI) is currently

life of the vehicle. It also can affect road users'

travel time and safety. A well-maintained roadway

8 HERS-ST is an economic analysis tool that uses engineering standards to identify highway

proposed as part of MAP-21 draft rulemaking.10 Georgia currently exceeds this threshold on

can reduce overall vehicle operating costs for

deficiencies, and then applies economic criteria to

personal and commercial vehicles and support

select the most cost-effective mix of improvements for system-wide implementation. https://www.fhwa.

the Interstate Highway System. In fact, according to the IRI pavement scoring system, almost

roadway safety through the prevention of

dot.gov/infrastructure/asstmgmt/hersindex.cfm.

potholes and uneven lanes.

9 The HPMS is a national level highway information system that includes data on the extent, condition, performance, use and operating characteristics of the nation's highways. https://www.fhwa.dot.gov/ policyinformation/hpms.cfm.

10 https://www.federalregister.gov/articles/2015/01/05/ 2014-30085/national-performance-managementmeasures-assessing-pavement-condition-for-thenational-highway, January 2015.

Investment Needs

100 percent of pavement miles on the entire

Figure 3. Pavement Performance in 2040 by Road Class

GDOT-owned, Federal Aid System are in fair or better condition.

Percent Pavement in Fair or Better Condition (Based on IRI) 100%
90%

Despite today's excellent pavement conditions, even

80%

if demand along a roadway segment is constant or

70%

decreases, pavement performance will deteriorate

60%

with age. Therefore, it is necessary to specify some
50%

level of funding over the plan horizon to properly

40%
address long-term deficiencies. HERS-ST was used

to compute pavement performance forecasts

30%

in the year 2040, in terms of IRI, at varying

20%

annual funding levels (Figures 3 and 4, page 10).

10%

Interstate
Other NHS Other FAS GDOT Owned Current Performance

Interstate Other NHS Other FAS

Lane Miles
6,314 16,416 31,240

DVMT
46% 36% 18%

Current Performance
100% 99% 99%

Performance curves are shown in Figure 3 for

0% 0

100

200

300

400

500

600

700

800

900

1,000

the Interstate Highway System (Interstate), the

Annual Funding in Millions of $2013

Source: Cambridge Systematics, 2040 SWTP/2015 SSTP.

10

Non-Interstate National Highway System (other

NHS), and the remaining Federal Aid System,

Figure 4. Pavement Performance in 2040 for the GDOT-Owned,

GDOT-owned (other FAS GDOT-owned). The

Federal Aid System

performance versus funding relationship for

Percent Pavement in Fair or Better Condition (Based on IRI)

FAS GDOT Owned Current Performance, FAS GDOT Owned

the entire GDOT-owned, Federal Aid System

100%

is shown in Figure 4. Current performance is

90%

highlighted in both figures for context.

80%

70%

60%

50%

40%

30%

20%

10%

0% $0

$200

$40 0

$600

$800

$1,0 00

$1,200

$1,400

$1,60 0

Annual Budget in Millions of $

Source: Cambridge Systematics, 2040 SWTP/2015 SSTP.

As shown in Figure 4, at current annual funding levels of approximately $277 million per year11, pavement conditions are forecast to deteriorate sharply across the GDOT owned system by 2040, from approximately 100 percent of the system in fair or better condition today to only 22 percent of the system in fair or better condition.
To meet minimum federal thresholds of performance that will require at least 95 percent of the Interstate Highway System in fair or better condition, as well as ensure adequate conditions on the remainder of the GDOTowned FAS system, approximately $1.07 billion per year is needed almost tripling today's annual funding levels. Approximately $1.6 billion per year is needed to ensure today's excellent pavement condition levels which exceed proposed MAP-21 performance thresholds are carried forward in the future.12
11 Average annual spending from the 2014-2017 State Transportation Improvement Program.
12 Total investment needs to maintain pavement conditions on GDOT-owned facilities over the plan horizon, as summarized here, reflect IRI projections of pavement smoothness. These projections may under represent investment needs based on COPACES projections of pavement quality and condition.

GEORGIA DEPARTMENT OF TRANSPORTATION STATEWIDE PLAN

Pavement

conditions are

forecast to

deteriorate sharply

across the GDOT

owned system

by 2040, from

approximately

11

100 percent of the

system in fair or

better condition

today to only

22 percent of the

system in fair or

better condition.

Investment Needs

FUNDING LEVELS

INVESTMENT NEEDS

*$Millions Per Year

Pavement conditions are expected

$2,000

to deteriorate significantly if historic spending levels are carried forward;

only 22 percent of the state-owned

$1,500

$1,600

federal-aid system will be in fair or better condition compared to almost

$1,000

$1,070

100 percent today. Aggressive investment over today's

$500

$730

spending levels will be needed to meet federal performance thresholds,

reduce commercial and private vehicle

$0

operating costs, and improve safety.

Low

Medium

High

Transportation networks critical to

Supports federal requirements Supports federal requirements

Maintains today's excellent

the state economy (priority freight

12

for Interstate System and

for Interstate System, ensures

condition levels on entire

corridors and Interstate System) will

adequate conditions on

adequate conditions on NHS

GDOT-owned system.

require priority funding.

NHS, but conditions on

and remainder of non-NHS,

non-NHS will significantly

GDOT-owned system.

deteriorate over time.

* As part of plan development an analysis of performance impacts by funding level was completed for highway-oriented investments. Reference Plan Recommendations for more detail.

PAV E M E N T

GEORGIA DEPARTMENT OF TRANSPORTATION STATEWIDE PLAN

BRIDGE
There are 14,739 bridge structures on public roads in Georgia, including culverts, with a total deck area of approximately 100 million square feet. GDOT owns 55 percent of these bridges, but those bridges represent 77 percent of the bridge deck area in the State.

revised. Addressing functional deficiencies may require the widening or replacement of the structure. Rural bridges tend to have a higher percentage of structural deficiencies, while urban bridges have a higher incidence of functional obsolescence due to rising traffic volumes.
The majority of GDOT-owned bridges are neither

Figure 5. Percent of Bridge Deck Area (GDOTOwned Bridges) by Performance
2%
11%

structurally deficient nor functionally obsolete.

The condition of these bridges are dependent on

This is similarly true for the deck area of bridges

not only structural integrity, but also whether its

owned by GDOT, with only 2 percent of the

design can handle the amount of traffic traversing

deck area being on structurally deficient bridges

87%

the bridge. Specifically, bridge performance has

and 11 percent of the deck area on functionally

been defined by whether a bridge is Structurally

obsolete bridges (Figure 5, page 13).

Deficient (SD) or Functionally Obsolete (FO).

Structural deficiencies are characterized by

This low percentage of bridges rated as SD or FO

deteriorated conditions of significant bridge

is similar among those located on the Interstate

Neither Structurally Deficient

13

elements and potentially reduced load-carrying

Highway System, NHS, and FAS for which federal

or Functionally Obsolete

capacity. A "structurally deficient" designation

funding is administered by GDOT. Even the structures

Functionally Obsolete Structurally Deficient

does not imply that a bridge is unsafe, but such

not on any of these systems, which are owned

Source: Cambridge Systematics from GDOT's 2012 National

bridges typically require significant maintenance,

by entities other than GDOT, only have 10 percent

Bridge Inventory Submittal.

repair, and operational restrictions to remain in service, and would eventually require major rehabilitation or replacement to address the underlying deficiency.

of their bridges as SD and 14 percent as FO.
Continued maintenance and preservation of Georgia's bridges over the plan horizon is critical. The National Bridge Investment Analysis

performance of the existing federal-aid bridge network in the State (excluding culverts) at varying funding levels in the year 2040. NBIAS calculates the number of bridges and the

A bridge is considered Functionally Obsolete

System (NBIAS)13 was used to estimate bridge

percentage of deck area on nonstructurally

when it does not meet current design standards (for criteria such as lane width), either because the volume of traffic carried by the bridge exceeds the level anticipated when the bridge was constructed and/or the relevant design standards have been

13 The National Bridge Investment Analysis System was developed for assessing national bridge investment needs. It is used to model investments in bridge repair, rehabilitation, and functional improvements for annual reports to U.S. Congress. https://www.fhwa.dot.gov/policy/2013cpr/ appendixb.cfm.

deficient bridges based on bridge deck, super, and sub-structure. The percent deck area on nonstructurally deficient bridges, as defined by NBIAS, is used to report bridge conditions, consistent with the expected performance

Investment Needs

Bridge conditions are forecast to deteriorate slightly across the federal-

Figure 6. Bridge Performance (Federal-Aid System) in 2040
Percent of Bridge Deck Area on Nonstructurally Deficient Bridges 100%
90%
80%

aid bridge system by

70%

60%

2040, from approximately

50%

98 percent of the deck

40%

30%

area on nonstructurally

20%

Federal-Aid Bridges (Excluding Culverts)
Current Performance

deficient bridges today to approximately 90 percent.

10%

0%

$0

$50

$100

$150

$200

$250

Annual Funding in Millions of $2013

Source: Cambridge Systematics, 2040 SWTP/2015 SSTP.

$300

$350

14

measure for purposes of MAP-21 performance reporting. Bridge condition data is collected by

Georgia are on non-SD bridges, exceeding the proposed MAP-21 performance threshold.

While current annual funding levels are estimated to be enough to address proposed

each state and reported to the FHWA through the National Bridge Inventory (NBI), the primary input into NBIAS performance projections.14

Future performance in the year 2040 is presented in Figure 6 (page 14) given average annual funding levels over the plan horizon, as projected

minimum MAP-21 performance thresholds that will require at least 90 percent of deck area on the NHS to be on non-structurally

Proposed MAP-21 performance regulations define

through NBIAS. As shown in Figure 6, at current

deficient bridges, it is a decrease from today's

a minimum performance threshold of 90 percent

annual funding levels of approximately $236

excellent bridge condition levels. Approximately

of bridge deck area on non-SD bridges for the

million per year,16 bridge conditions are forecast to

$350 million per year is needed to replicates

NHS.15 Currently, approximately 98 percent of

deteriorate slightly across the federal-aid bridge

today's excellent bridge conditions as shown

bridge deck area on all federal-aid bridges in

system by 2040, from approximately 98 percent

in Figure 6.17

14 The NBI is a national database compiled by FHWA for all federal-aid bridges and bridge structures. https://www.fhwa.dot.gov/bridge/nbi.cfm.
15 https://www.federalregister.gov/articles/2015/01/05/ 2014-30085/national-performance-managementmeasures-assessing-pavement-condition-for-thenational-highway.

of the deck area on nonstructurally deficient bridges today to approximately 90 percent.
16 Average annual spending from the 2014-2017 State Transportation Improvement Program.

17 Total investment needs to maintain federal-aid bridges over the plan horizon, as summarized here, reflect NBIAS projections and measures of structural deficiency. These investment levels may under represent investment needs based on GDOT's measures of bridge deficiency.

GEORGIA DEPARTMENT OF TRANSPORTATION STATEWIDE PLAN

FUNDING LEVELS
*$Millions Per Year

$500

$400

$300

$200

$100 $0

$100 Low

$235 Medium

$350 High

INVESTMENT NEEDS
Approximately 2 percent of deck area on GDOT-owned bridges are Structurally Deficient today.
Eleven percent of deck area on GDOT-owned bridges are functionally obsolete today.
Continued investment at existing funding levels is expected to result in lower levels of bridge condition for the entire federal-aid bridge system over the plan horizon.

Significant deterioration in the Mirrors todays funding levels;

Maintains today's excellent

15

bridge condition over entire Supports federal requirements

condition levels on entire

Federal Aid System.

for bridge condition on NHS

federal-aid bridge system.

system as well as rest of

Federal Aid System.

* As part of plan development an analysis of performance impacts by funding level was completed for highway-oriented investments. Reference Plan Recommendations for more detail.

BRIDGE

Investment Needs 16

GEORGIA DEPARTMENT OF TRANSPORTATION STATEWIDE PLAN

CAPACITY
The capacity of the road system depends on the number of lanes and the operation of those lanes, such as the presence of traffic signals and roadway width. These factors establish how many vehicles can travel along a roadway within a designated amount of time. Roadways with too little capacity can cause delays, gridlocks, and increased travel times.
Understanding where roadways have volumes that exceed capacity is necessary to address where capacity improvements are needed the most. For the 2040 SWTP/2015 SSTP, Level of Service (LOS) is used to represent daily volume to capacity ratios (V/C) to identify where roadway capacity needs exist.
Currently, the LOS on the FAS in Georgia, including the NHS, averages LOS B.18 For the Interstate System the average is LOS C. The commonly accepted design standard for roads in rural areas is LOS C and for roads in urban areas is LOS D. Overall, across the State and on an average daily basis, nonaccess
18 Level of Service conditions were determined by extracting highway links for each system of interest from the GDOT Statewide Model and calculating a weighted average V/C ratio by link length. LOS thresholds are defined within the GDOT Statewide Model; reference Figure 7, page 17 for V/C ratio thresholds.

controlled roadways average LOS B and access-controlled roadways average LOS C. However, peak-hour conditions on certain roadways, particularly in the Atlanta metropolitan region and other urbanized areas, can be as low as LOS F, meaning that the roadways are operating over capacity and are highly congested.
Traffic volumes are expected to increase by 2040 given anticipated population and employment growth. Forecast growth rates will lead to increased congestion, in particular in the Atlanta region. In 2040, road performance for the NHS deteriorates to an average LOS C, with significantly more locations operating at LOS E/F (Figure 7, page 17).
Forecast growth rates will lead to increased congestion, in particular in the Atlanta region.

GEORGIA DEPARTMENT OF TRANSPORTATION STATEWIDE PLAN

Figure 7. Existing and Future Daily LOS on Federal-Aid Highways

Existing (2010) Daily LOS

Future (2040 Existing and Committed) Daily LOS

17

Source: GDOT 2010 Statewide Model and MPO Travel Demand Models.

Source: GDOT Statewide and MPO Travel Demand Models.

Investment Needs 18

GEORGIA DEPARTMENT OF TRANSPORTATION STATEWIDE PLAN

An increase in freight truck traffic also can affect roadway capacity, due to larger vehicles and slower speeds. The efficient movement of goods is vital for continued economic development and growth. The presence of key freight assets in the State, such as the Port of Savannah and Hartsfield-Jackson Atlanta International Airport (HJAIA) drives the importance of freight to the State's economy. The Interstate System is the preferred roadway to use for trucks as it has the highest design speeds and the most compatible geometric features for trucking operations. Therefore, the capacity of the Interstate System is a significant element of the quality of trucking operations, as well as roadways within the official Statewide Designated Freight Corridors network, which was adopted by the Georgia State Transportation Board in August 2013 (Figure 8, page 19).
The trucking industry carries the vast majority of the freight moved in the State, hauling 75 percent of the total freight tonnage in Georgia. This is due to its flexibility in terms of being able to handle varying shipment sizes and last-mile connectivity. As of 2007, approximately 640.8 million tons of goods traveled by truck, 35 percent of which had an origin and destination in Georgia. By 2040, the amount of truck traffic is expected to double. Given the

importance of freight and the trucking industry to the Georgia economy, a strategic focus on improving roadway capacity and operations in and around freight hotspots is critical.
Type of Movement 2007 Tons
Through 190 Million Tons

Within 226 Million
Tons

Outbound 118 Million Tons

Inbound 106 Million Tons

By 2040, the amount of truck traffic is expected to double.

Figure 8. Georgia Statewide Designated Freight Corridors

GEORGIA DEPARTMENT OF TRANSPORTATION STATEWIDE PLAN

19 Source: State Transportation Board Designated Freight Corridors per Georgia code, 2013.

Investment Needs 20

Figure 9. Roadway Capacity Performance in 2040

User Benefits ($M) $60
LOS F $50

$40

$30

$20

$10

$0 $0

$200

LOS E

LOS D

LOS C

LOS A-B

Level of Service (LOS) F to E LOS E to D LOS D to C LOS C to A/B Performance Curve

$400

$600

$800

Average Annual Funding in Millions of $2013

$1,000

$1,200

Source: Cambridge Systematics, 2040 SWTP/2015 SSTP.

Figure 9 (page 20) presents projected roadway performance in the year 2040 given average annual funding levels for roadway capacity improvements over the plan horizon. Congestion impacts were modeled using the GDOT 2010 statewide model. Auto and truck vehicle-hours of delay savings were estimated given varying funding levels for roadway capacity investments and translated to total user benefits given auto and truck values of time. GDOT spends approximately $740 million per year on roadway capacity

improvements today.19 This funding level is projected to save approximately $48 million in user costs derived from travel delay savings. These savings are gained from a projected $73 million congestion cost due to delay in the year 2040. This funding level is estimated to be enough to address all LOS D-F deficiencies across the network, as well as maintain portions of LOS C. All LOS impacts reflect average travel conditions across the statewide transportation network.

19 Average annual funding derived from the 2014-2017 State Transportation Improvement Program.

GEORGIA DEPARTMENT OF TRANSPORTATION STATEWIDE PLAN

FUNDING LEVELS
*$Millions Per Year $1,000

$800

$600

$400 $200

$300

$0 Low

$660 Medium

$800 High

INVESTMENT NEEDS
The number of vehicle trips is forecast to increase by 1.5 percent per year; congestion levels are expected to increase on the NHS as a result, particularly in the Atlanta region.
Truck traffic is expected to double by 2040, compounding congestion issues.
Increasing congestion will result in deteriorating reliability and an increasing number of accidents.

Funding will address only

Approximates todays

Improves LOS C and

21

the worst congestion

funding levels; improves

worse throughout

deficiencies in 2040 (LOS F).

LOS D and F throughout

the network in 2040.

the network and maintains

portions of LOS C in 2040.

* As part of plan development an analysis of performance impacts by funding level was completed for highway-oriented investments. Reference Plan Recommendations for more detail.

C A PA C I T Y

Investment Needs 22

OPERATIONS
Operational improvements on the State's roadway system improve the overall efficiency and quality of the network without having to add significant physical capacity. Infrastructure such as traffic signals, ramp metering, and signal coordination can decrease overall travel time, improve safety, and reduce traffic delay. GDOT has recognized the need to install, upgrade, and invest in traffic operations as a cost-effective way to address mobility needs. GDOT currently has a variety of programs focusing on operational improvements, including, but not limited to:
Regional Traffic Operations Program (RTOP)/Synchronizing Traffic Lights. RTOP is a program specifically focused on synchronizing traffic lights on Atlanta's busiest arterial roadways. These corridors also are monitored to quickly find and repair problems.
Variable Speed Limits. Speed limit signs that change based on road, traffic, and weather conditions. These signs are focused on slowing down traffic ahead of congestion to smooth traffic flow, further avoid crashes, and reduce stop-andgo traffic.

Capacity-Related Improvements. Roadway designs, such as roundabouts and diverging diamond interchanges, can affect the capacity of the roadway and improve operations. Certain designs, dependent on the traffic volume and other factors, can reduce queues and delays.
Ramp Metering. A signal controller that regulates traffic flow entering an Interstate, breaking up platoons of vehicles and helping maintain a steadier flow of traffic.
Operational improvements on the State's roadway system improve the overall efficiency and quality of the network without having to add significant physical capacity.
The 2040 SWTP/2015 SSTP supports these and other operational improvements, specifically investments focused on user delay reduction through projects involving traffic signal coordination, ramp metering, and incident response. GDOT

GEORGIA DEPARTMENT OF TRANSPORTATION STATEWIDE PLAN

has been historically involved in implementing these project types, especially in areas of high congestion and unreliable traffic conditions.

Figure 10. Roadway Operations Performance in 2040
Daily User Benefits ($M)
$70

Figure 10 (page 23) presents projected

$60

performance impacts derived from operational

$50

improvements in the year 2040 given average

$40

annual funding levels over the plan horizon.

$30

Operational impacts were modeled for signal $20

coordination, ramp metering, and incident

response programs only using benefit-cost

$10

Performance Curve

relationships derived for these programs from

$0 0

50

100

150

200

250

the 2014-2018 GDOT Transportation Asset

Average Annual Funding in Millions of $2013

Management Implementation Plan.20 Performance

Investment in signal coordination, ramp metering, and incident response programs only.

impacts are presented as monetary user benefits

Source: Cambridge Systematics, 2040 SWTP/2015 SSTP.

derived from auto and truck vehicle-hours of delay

23

savings given auto and truck values of time.

Currently, GDOT spends approximately $78 million per year on roadway operations improvements.21 This funding level is projected to save approximately $47 million in user costs derived from travel delay savings. Additional funding for operations up to approximately $200 million per year, as demonstrated in the performance curve, can yield potentially significant, additional benefits for roadway users.

20 http://www.dot.ga.gov/BuildSmart/Programs/ Documents/AssetMgmt/TAMPlan.pdf.
21 Average annual funding derived from the 20142017 State Transportation Improvement Program.

Investment Needs

FUNDING LEVELS
*$Millions Per Year $250

$200

$150

$100

$50

$80

$140

$200

INVESTMENT NEEDS
Continued focus on signal coordination, ramp metering, and incident response as key operational investments.
Tailored operational improvements that align with specific roadway types and community context.

$0 Low

Medium

High

24

Mirrors today's spending

Supports a reduction

Supports a reduction

levels; supports a

of $58 million in

of $62 million in

reduction of $47 million

user-cost savings.

user-cost savings.

in user-cost savings.

* As part of plan development an analysis of performance impacts by funding level was completed for highway-oriented investments. Reference Plan Recommendations for more detail.

O P E R AT I O N S

GEORGIA DEPARTMENT OF TRANSPORTATION STATEWIDE PLAN

SAFETY

Figure 11. Annual Fatalities on Georgia Highway System

Safety on Georgia's roads is the highest priority for GDOT. The State has worked Towards

Fatalities 2,000

Zero Deaths for years. With an increase in expected population, visitors, and licensed drivers, highway safety will remain a priority and

1,500

Highway Fatalities

concern for GDOT and all roadway users.

Highway safety can be measured by the

1,000

number and rate of fatalities, injuries of varying

levels, and property damage crashes. While

500

the State has experienced a stable, consistent

reduction in fatalities for nine consecutive

years (Figure 11, page 25), current data is

0

showing an increase in fatalities in 2015. This

2006

2007

2008

2009

2010

2011

2012

2013

2014

would be the first increase in Georgia in a

25

decade. Single vehicle crashes (i.e., a single vehicle hitting a fixed object) account for 49 percent of these fatalities, and the main cause appears to be distracted driving. Drivers, now more than ever, are driving distracted or impaired. Seventy-four percent of fatalities today are attributed to driver behavior.
Seventy-four percent of fatalities today are attributed to driver behavior.

Given this trend, GDOT has proactively initiated the DriveAlert ArriveAlive campaign to reduce fatalities on Georgia's roads. The campaign is an aggressive year-long effort (May 2015 through April 2016) to alert the public to a surge in preventable traffic fatalities in 2015 and to encourage simple changes in driving behavior to turn the tide on these crashes and fatalities. It focuses on educating drivers about how making simple changes in their driving behavior can prevent crashes, and increase their safety and the safety of their passengers, other motorists,

The DriveAlert ArriveAlive campaign is a partnership between GDOT, the Governor's Office of Highway Safety (GOHS) and the Department of Public Safety (DPS). These agencies also partner through ongoing Strategic Highway Safety Plan development (SHSP). The Governor's Strategic Highway Safety Plan outlines the State's strategy to reduce highway crashes, injuries, and fatalities based on safety data, patterns, and trends which reveal crash and/or hot spot locations that have an overrepresented number of

pedestrians, and bicyclists.

crashes in relation to the amount of traffic.

Investment Needs

Because traffic safety issues are sensitive to

Figure 12. Safety Performance in 2040

a variety of factors and are not stagnant, the

Reduction in Number of Fatalities

Georgia SHSP is updated annually to adjust

160

its strategies to meet current conditions. The 140

data-driven emphasis areas identified in the 120
SHSP provide a framework and direction for

infrastructure and behavior-related safety

100

improvements. While behavioral issues are

80

the dominating safety issues today, the SHSP

60

has defined critical emphasis areas as they

40

relate specifically to infrastructure. The SHSP

20

Performance Curve

currently defines two critical safety emphasis areas related to roadway infrastructure

0 $0

$50

$100

$150

$200

$250

$300

$350

$400

intersection crashes and roadway departures.

Average Annual Funding in Millions of $2013

These emphasis areas were the focus of 2040

Investment in intersection and roadway departure improvements.

26

SWTP/2015 SSTP safety analysis.

Source: Cambridge Systematics, 2040 SWTP/2015 SSTP.

The SHSP currently defines two critical safety emphasis areas related to roadway infrastructure intersection crashes and roadway departures.
Figure 12 (page 26) presents projected performance impacts derived from safety

improvements in the year 2040 given average annual funding levels over the plan horizon. Safety impacts were modeled for intersection and roadway departure improvements only using benefit-cost relationships derived for these programs from the 2014-2018 GDOT Transportation Asset Management Implementation Plan. Performance impacts are presented as a reduction in the number of fatalities, which is a focus of proposed MAP-21 performance regulations.22
22 https://www.federalregister.gov/articles/2014/03/11/

Currently, GDOT spends approximately $144 million per year on stand-alone safety improvements.23 This funding level is projected to reduce fatalities by approximately 113 per year. While current safety spending levels have supported a downward trend in fatalities and serious injury crashes, additional funding is needed to ensure continued progress in the future.
2014-05152/national-performance-managementmeasures-highway-safety-improvement-program, March 2014. 23 Average annual funding derived from the 2014-2017 State Transportation Improvement Program.

GEORGIA DEPARTMENT OF TRANSPORTATION STATEWIDE PLAN

FUNDING LEVELS

INVESTMENT NEEDS

*$Millions Per Year

Behavioral issues are now a leading cause of crashes in the State.

$200 $150 $100
$50

$140

$200

$230

Roadway departures and intersection crashes remain a top safety challenge across the state, as it relates to roadway infrastructure.
Continued traffic safety data analysis is needed to identify crash hot spots and top contributions to crashes.

$0

Crashes involving bicycle and

pedestrian users are on the rise

Low

Medium

High

as demand for multimodal travel

increases; enhanced design and

Mirrors today's spending

Reduces fatalities

Reduces fatalities

construction efforts are needed to

27

levels; reduces fatalities

(associated with intersection (associated with intersection

prevent infrastructure-related crashes

(associated with intersection

crashes and roadway

crashes and roadway

for all roadway users.

crashes and roadway

departures only) by 115.

departures only) by 124.

departures only) by 113.

* As part of plan development an analysis of performance impacts by funding level was completed for highway-oriented investments. Reference Plan Recommendations for more detail.

SAFETY

Investment Needs 28

PUBLIC TRANSPORTATION
Approximately 81 percent of the population of Georgia today is served by transit, either through urban fixed-route, paratransit/ondemand or rural human services (demandresponsive service). Statewide, about 2.26 percent of commuters take transit to work; in the Atlanta region the figure rises to 12.66 percent. People also use transit to perform other significant functions of daily life, including medical appointments, shopping, personal and recreational trips.
URBAN TRANSIT
There are 15 urban fixed-route transit providers in Georgia, four of which are located within the boundaries of the Atlanta MPO and are classified as "Very Large," serving a population greater than 1,000,000. The Metropolitan Atlanta Rapid Transit Authority (MARTA) is the largest public transit provider and only heavy rail system in the State. Figure 13 (page 29) illustrates the geographic distribution and classification of the 15 urban fixed-route transit systems throughout the State as of 2012. The 156 park-and-rides facilities in the State also support many of these urban transit providers, most of which are located with the Atlanta

metropolitan area and are in proximity to the Interstate System.24
The number of customers using these systems is measured in the form of ridership. Besides MARTA, Chatham County Transit (CAT) had the highest ridership in 2012, closely followed by Cobb County Transit (CCT). The majority of the transit systems experienced increases in ridership between 2007 and 2009; however, several systems showed a loss in ridership between 2009 and 2011 during the recession, most of which have since rebounded (Figure 14, page 30). Urban transit ridership is comparable to national averages, with larger- and medium/small-sized systems in Georgia having a higher average ridership when compared to the national average.
The majority of these fixed-route urban transit providers also provide paratransit service. The population served by these programs includes, but is not limited to, older adults, low-income individuals, those who do not own a vehicle, and individuals with disabilities.
24 Other transit systems in the State include transit systems and shuttles for universities, such as the Georgia Institute of Technology's Stinger Shuttles and the University of Georgia's Campus Transit. Shuttles that service dense employment areas, such as Buckhead (BUC Shuttle) and Atlantic Station (Free Ride), provide additional transportation options and connect to urban transit providers, including MARTA and GRTA.

Figure 13. Urban Fixed-Route Transit Systems
Source: GDOT, MARTA, Albany Transit System, Athens Transit System, APT, CAT, CCT, METRA, Douglas County Rideshare, GCT, GRTA, HAT, LT, MTA, RTD.

GEORGIA DEPARTMENT OF TRANSPORTATION STATEWIDE PLAN

Urban Fixed-Route Transit Systems

Size

Number

Fixed-Route Transit

ID

System

Small

1

Albany Transit System

2

Athens Transit System

3

Cherokee Area

Transit System

4

Douglas County

Rideshare

5

Hall Area Transit

6

Liberty Transit

7

Macon-Bibb County

Transit Authority

29

8

Rome Transit Department

Large

9

Augusta Public Transit

10

Chatham Area

Transit Authority

11

Columbus Transit System

Very Large

12

Cobb Community Transit

13

Gwinnett County Transit

14

Georgia Regional

Transit Authority

15

Metropolitan Atlanta

Rapid Transit Authority

Investment Needs

There are urban areas in the State currently without

Figure 14. Bus Urban Transit System Ridership 2007 to 2012

Unlinked Trips, Millions 5.0
Small
4.5 2007 2009 2011 2012
4.0
3.5
3.0

Unlinked Trips, Millions (MARTA)

80

Large

Very Large

70

60

50

fixed route transit 2.5

40

2.0

30

service which

1.5

20

1.0

have population 0.5

10

30

density to support, including:

0.0

0

Albany Athens Douglas

Hall Macon RomeAugustaChathamColumbus CobbGwinnett GRTA MARTA

Cartersville,

In urban areas already served by transit, about 10 percent of the densely populated areas which could support transit, have no service, In addition,

Currently 125 of Georgia's 159 counties have access

Valdosta,

there are urban areas in the State currently without fixed-route transit service which have population

to either urban fixed-

Brunswick,

density to support, including Cartersville, Valdosta,

route or rural demand-

Dalton, and

Brunswick, Dalton, and Warner-Robins.

responsive transit services.

Warner-Robins.

GEORGIA DEPARTMENT OF TRANSPORTATION STATEWIDE PLAN

RURAL TRANSIT
Another component of public transportation in Georgia are rural transit programs. GDOT, along with other human service transit providers, including the Department of Human Services (DHS) and Department of Community Health (DCH) coordinates rural human services transportation (RHST) across the State. Similar to urban transit provider's paratransit services, rural transit programs are focused on improving

mobility options to older adults, low-income individuals, those who do not own a vehicle, and/or individuals with disabilities, typically through demand-responsive service. The Southwest Georgia Regional Commission had the highest ridership among rural providers in 2012 at over 333,000 trips.
Currently 125 of Georgia's 159 counties have access to either urban fixed-route or rural demand-responsive transit services. Thirtyfour

counties do not currently have access to demand-responsive service; these counties fall almost entirely in rural areas. Areas of the state lacking in demand-responsive service include Regional Commission areas of Southern Georgia, Heart of Georgia, River Valley, Central Savannah River Area, Northeast Georgia, and Middle Georgia districts.

31

Investment Needs

URBAN INVESTMENT NEEDS

RURAL INVESTMENT NEEDS

Multiple transit-supportive clusters in the Atlanta urbanized area are not served by transit.

Thirty-four counties do not have access to public transportation; these counties are primarily rural.

The Brunswick, Cartersville, Dalton, Warner Robins, and Valdosta urbanized areas lack fixed-route transit service, as does Georgia's portion of the Chattanooga urbanized area.

Over 700,000 persons remain unserved by rural service; this is more than 20 percent of the rural population outside of urban counties.

Potential demand exists for park-and-ride facilities along key interstates around Atlanta, Macon, Brunswick, and Augusta.
32

Additional operating funds for Rural and Human Service Transportation (RHST) are needed to meet the projected increase in demand.

PUBLIC TRANSPORTATION

GEORGIA DEPARTMENT OF TRANSPORTATION STATEWIDE PLAN

BICYCLE AND PEDESTRIAN
Bicycle and pedestrian infrastructure is located throughout the entire State, such as recreational trails, sidewalks, and bicycle lanes. Due to the scale and trip length for most pedestrians and cyclists, needs for nonmotorized transportation are generally identified and sponsored at the regional and/or local level. GDOT supports the

exclude nonmotorized modes of transportation (e.g., in Georgia, bicycles are not permitted on Interstates). However, many bicyclists prefer roads with bicycle infrastructure, which includes signed shared roadways, bicycle lanes, paved shoulders that are considered "bikeable," and shared-use path facilities. Bicycle lanes are GDOT's preferred bicycle facility type.25

Bicycle Lanes

incorporation of bicycle, pedestrian, and transit

GDOT has identified a network of 14 designated

facilities along state-maintained facilities when specific GDOT warrants for pedestrian, bicycle, and transit accommodations are met, as identified through its complete streets policy. Adopted Fall

bicycle routes across the State totaling 2,943 miles. Approximately 70 percent of this network is on GDOT-owned state routes and includes both paved shoulders and bicycle

Shared-Use Paths

of 2012, GDOT's Complete Streets Policy aims

lanes. This network connects population centers

to incorporate pedestrians, bicyclists, and transit

throughout the State and is intended to primarily

33

users/vehicles into transportation infrastructure

serve longer distance riders between and within

projects. The purpose of the policy is to improve

these areas (Figure 15, page 34). Despite the

the access, mobility, and safety of all transportation users and address these needs starting at the planning stages of a project. The accommodations for these modes of transportation are required under specified conditions, such as when the need

robust coverage of the statewide system, gaps in the continuity of bicycle-friendly infrastructure (e.g., wide and/or paved shoulders) exist. Increasing vehicular traffic also is posing a challenge for the usage and safety of the state bicycle system

Signed Bicycle Routes

or probable use of alternative modes is high.

as seen on routes such as Northern Crescent,

This may include the incorporation of sidewalks,

Appalachian Gateway, Little White House, Central,

safe intersection crossings, bicycle lanes, and/

and March to the Sea.

or transit stops into transportation projects.

Regardless of the presence of bicycle accommodations, bicyclists are legally allowed on any roadway other than those that specifically

25 Bicycle lanes and related improvements shall be incorporated into all widening and reconstruction projects when there is an existing bikeway or if the project is on an approved Bicycle Route. GDOT Design Policy Manual, Chapter 6.12.

Investment Needs
Figure 15. Georgia State Bicycle Routes
34
Source: GDOT.

Urban Fixed-Route Transit Systems

Direction Route Number

East-

10

West

20

40

50

60

70

Route Name Southern Crossing
Wiregrass TransGeorgia Augusta Link Athens Link Northern Crescent

90

Mountain Crossing

NorthSouth

5

Chattahoochee Trace

15

Central

35

March to the Sea

45

Little White House

55

Appalachian Gateway

85

Savannah River Run

95

Coastal

15

Metropolitan Atlanta

Rapid Transit Authority

GDOT has identified a network of 14 designated bicycle routes across the State totaling 2,943 miles.

GEORGIA DEPARTMENT OF TRANSPORTATION STATEWIDE PLAN

Beyond this designated state bicycle route

The number of bicyclists and pedestrians has

involving a bicycle and 3,204 crashes occurred

system, there are numerous bicycle facilities,

been increasing in response to population

involving a pedestrian. As the number of cyclists

many of which are bicycle routes that are

growth as well as a shift to these alternative

and pedestrians increase, safer infrastructure

designated by local governments, MPOs, and

modes of transportation. In the United States,

and public outreach to share the road can

Regional Commissions. Urban and suburban

the share of trips taken on a bicycle or walking

combat these types of crashes.

environments also are the location of pedestrian infrastructure, consisting primarily of sidewalks and shared-use paths. There are over 2,800 miles of sidewalks on federal-aid roads in Georgia, of which almost 40 percent lies in the Atlanta region.

has increased significantly over the last two decades (Figure 16, page 35). This trend is expected to continue into the future both at the national and state level given increasing demand for nonautomobile travel options and growing

Between 2010 and 2012, 1,125 crashes occurred involving

The presence of bicycle and pedestrian facilities

elderly population.

a bicycle and

and the higher densities of urbanized areas results in a higher share of bicycle and pedestrian commuters. Statewide, 1.8 percent of commuters

This higher share of users also results in more crashes involving a bicyclist or pedestrian. Between 2010 and 2012, 1,125 crashes occurred

3,204 crashes occurred involving a pedestrian.

bike or walk from their home location to work; many urban areas have a higher share, including

Figure 16. Number of U.S. Trips Taken by Bicycling and Walking 1990 to 2009

35

Athens (6.2 percent), Atlanta (5.1 percent), and

Number of Trips (Billions)

Walking

Savannah (4.3 percent).

$45

Bicycling

$40

There are over

$35

2,800 miles of

$30

sidewalks on federal-

$25 $20

aid roads in Georgia,

$15

of which almost 40 percent lies in the Atlanta region.

$10

$5

$0
Source:

1990

1995

2001

2009

National Household Travel Survey via The National Bicycling and Walking Study: 15-Year Status Report, May 2010, Federal

Highway Administration.

Investment Needs
INVESTMENT NEEDS
Increased demand for bicycle and pedestrian facilities is expected in the coming decades, in both urban and rural areas of the State. Gaps in continuity exist along the statewide bicycle network. Increasing vehicular traffic poses a challenge for some portions of the State's bicycle routes. The bicycle travel conditions on the Northern Crescent, Appalachian Gateway, Little White House, Central, and March to the Sea statewide bike routes have
deteriorated due to traffic and shoulder conditions. Bicycle and pedestrian crashes are on the rise, particularly in high-demand locations such as Atlanta and Savannah metropolitan areas.
36
BICYCLE AND PEDESTRIAN

GEORGIA DEPARTMENT OF TRANSPORTATION STATEWIDE PLAN

FREIGHT RAIL

Figure 17. Georgia's Rail Network

Georgia serves as an important connection for

freight rail, serving two large east coast Class I

railroads and many intermodal hubs. There are

over 6,000 miles of railroad track in the State

with approximately 4,844 in active service.

Norfolk Southern (NS) and CSX Transportation

(CSX), operate 70 percent of this trackage. The

remaining miles are operated by 23 Class III

or Short-Line railroads. GDOT and the State

Property Commission own 676 miles of track

which is leased out to various operators. The

Class I rail lines connect rail hubs in Atlanta to

the Midwest and to marine ports in Georgia

and Florida. The two busiest corridors are the

37

CSX corridor between Jacksonville, Florida

and Tennessee via Waycross, Cordele, and

Atlanta, and a parallel NS corridor via Cordele,

Macon, and Atlanta. The primary intermodal

(rail/truck) terminals are located in Atlanta and

Savannah, the latter of which primarily serves

marine port traffic (Figure 17, page 37).

Source: http://www.dot.ga.gov/travelingingeorgia/rail/Documents/FreightRailMap.pdf.

Investment Needs

In 2007, Georgia's freight railroads moved 210 million tons of freight valued at $213 billion. Rail is the second most heavily used mode in the State after trucking, with 25 percent of freight tonnage and 10 percent of freight value transported by rail in 2007. By 2040, it is projected that the railroads will carry more than 343 million tons of freight annually, valued at $468 billion, an increase of 64 percent by tonnage and 120 percent by value, but still account for about 25 percent of all

By 2040, it is projected that the railroads will carry more than 343 million tons of freight annually, valued at $468 billion, an increase of 64 percent by tonnage and 120 percent

Figure 18. Georgia Rail Freight Flows by Direction 2007 to 2040, Weight
in Tons (Top) and
Value (Bottom)

Millions 180

2007 2010 2040

160

160

140

120

112

100

94 92

freight tonnage (Figure 18, page 38).

by value.

80 77
66

60

48

In 2007, Georgia's

40

38

freight railroads moved

As presented in the recent 2015 Georgia State

Rail Plan, key investment needs for the freight

20

24 14 13

25 22

210 million tons of freight valued at $213 billion.

rail system include: upgrading and maintaining track infrastructure for short-line railroads portrail connections, capacity improvements, and modernization improvements such as positive

0 Inbound
Billions 300

Local Outbound Through 2007 2010 2040
281

train control.

250

Most rail freight traffic currently is through traffic,

both in terms of tonnage and value. This pattern

200

is expected to continue through 2040. Inbound

traffic accounted for approximately onethird of the total freight rail tonnage, with the largest inbound commodities, including coal,

150
105
100

128 126

nonmetallic minerals, and clay, concrete, glass, and stone products.

50 51 48 0 Inbound

67

16 66

28 27

Local Outbound

Through

GEORGIA DEPARTMENT OF TRANSPORTATION STATEWIDE PLAN
INVESTMENT NEEDS
Modernization improvements are needed; e.g., short-line track infrastructure requires upgrades to the current industry standard of 286,000 pound per railcar, increases in vertical clearance will be necessary to handle double-stack container railcars and tri-level auto carriers.
Major system bottlenecks and at-grade rail crossings are inhibiting rail movement and require investment. Improved port-rail access, storage and operating efficiencies are needed. Improved last-mile connections to freight-rail facilities are needed.
39
FREIGHT RAIL

Investment Needs

AV I AT I O N

Figure 19. Overview of Public Airports by Level of Service

There are 104 publicly owned and used airports throughout the State, of which nine offer scheduled commercial service, and the remaining 95 classified as general aviation (Figure 19, page 40). GDOT is most involved with the general aviation airports and in providing last-mile roadway access to all of the airports. Each airport is classified as a Level I (minimum standard general aviation), Level II (business airport of local impact), or Level III (business airport of regional significance and/or commercial facility) based on the role it plays in the aviation system.
40

Sources: GDOT, FAA (September 2013).

GEORGIA DEPARTMENT OF TRANSPORTATION STATEWIDE PLAN

There are over 2 million general aviation flights

Although enplanements at commercial service

and 73,000 commercial flights annually. The

airports outside of HJAIA have stagnated in

nine commercial airports handle approximately

recent years, the total number of takeoffs and

47 million annual boardings, of which 46 million

landings is expected to increase in the future

are handled by the Hartsfield-Jackson

among all three classifications.

Atlanta International Airport (HJAIA). The next busiest commercial airport is the SavannahHilton Head International Airport (SAV), with just under 800,000 annual boardings. Most airports currently have excess capacity. Sixtyone percent of Level I general aviation airports currently meet facility and service objectives. Ten Level III airports require longer primary runways to meet facility objectives.

Cargo services also are a component of airports, with three airports with air cargo volumes above 1,000 annual tons in 200: HJAIA, the Southwest Georgia Regional Airport, and Savannah-Hilton Head International Airport. HJAIA represents more than 95 percent of the total air cargo volume in Georgia, with over 50 percent of commodities classified as miscellaneous mixed shipments

Nine commercial

or mail and contract traffic. Air cargo growth at

41

HJAIA is expected to face growing competition

airports handle approximately

from other larger international airports in the future.

47 million annual

boardings, of which

46 million are handled

by the Hartsfield-

Jackson Atlanta

International Airport.

Investment Needs

INVESTMENT NEEDS

Enplanements at commercial service airports outside of HJAIA have stagnated in recent years and air cargo growth at HJAIA is facing competition from other larger international airports; improved connections to the broader transportation system are needed to allow commercial airports to operate as economic engines throughout the State.

Additional/upgraded runway extensions, runway layouts, turnarounds, and aircraft parking and maintenance areas are required in order to comply with FAA regulations.

Aging pavement conditions are impacting safety at some facilities.

Most airports are operating at excess capacity; improving operations may attract demand; e.g., through purchasing or upgrading instrument approaches such as

42

runway and taxiway lighting upgrades, installation of precision approach path indicator (PAPI), and automated surface observing systems for weather tracking.

Landside expansions such as terminal areas, parking spaces, and other fixed-based operators are needed to support the general aviation services.

AV I AT I O N

GEORGIA DEPARTMENT OF TRANSPORTATION STATEWIDE PLAN

MARINE PORTS

The Port of Savannah is vital to the State's

There are three marine port complexes owned and operated by the Georgia Ports Authority (GPA): the Ports of Savannah, Brunswick, and Bainbridge, the largest of which is Savannah. There also are dozens of private terminals along the Georgia coast and the inland waterways, typically owned and operated by companies that exclusively ship their own

economy and is, overall, the fourth-largest container port in the U.S., handling about 3 million 20-foot-equivalent (TEU) container units annually. In addition, it is the second largest export port in the U.S. and has 37 weekly container ship calls, which is the second highest on the East Coast.
The Port of Savannah handles container,

The Port of Savannah is vital
to the State's

products. GDOT's primary role is to provide lastmile roadway access to the ports.

refrigerated, break-bulk, and roll-on/roll-off cargo such as automobiles. The Garden City Terminal,

economy and is,

Port volumes at GPA ports had record highs for

located seven miles upriver from downtown Savannah, is the largest GPA facility and the

overall, the fourth

fiscal year 2013, with 27.2 million tons of cargo moved across all GPA terminals. This included large increases in tons of cargo for specific commodities, such as biofuels, including wood

largest single terminal container operation in North America. This contributes to the large variety of commodities that are shipped through the facility, including wood pulp, food, furniture,

largest container port in the U.S.,

43

pellets and auto and machinery units.

and paper products, among many others.

handling about

Volumes by Port in FY 2010
Port of Savannah 24 Million Tons

The Port of Savannah's current channel depth is 42 feet; however, construction is underway to deepen that to 47 feet to consistently serve larger ships that will start traveling through the

3 million 20-foot-equivalent

$9 Billion Dollars
Port of Brunswick 2 Million Tons
$287 Million Dollars

Panama Canal. This deepening of the channel also increases the efficiency and safety of cargo vessel operations. Additional landside capacity may be needed and access improvements for both trucks and trains will be critical at

(TEU) container units annually.

Port of Bainbridge 82 Thousand Tons

the Port of Savannah to accommodate future growth projections.

Investment Needs
INVESTMENT NEEDS
Access improvements for both trucks and trains at the Port of Savannah are needed to accommodate future growth projections resulting from the widening of the Panama Canal.
Rail spurs and storage yards need to be upgraded at the Port of Brunswick. Additional capacity in the Garden City Terminal is needed to meet forecast future demand, particularly for 20-foot equivalent (TEU) containers. Improved rail access to the East River Terminal and Lanier Docks in Brunswick.
44
MARINE PORTS

GEORGIA DEPARTMENT OF TRANSPORTATION STATEWIDE PLAN

REVENUE PROJECTIONS

commensurate with needs. On May 4, 2015, the Georgia General Assembly approved the Transportation Funding Act of 2015.

For the 2040 SWTP/2015 SSTP, GDOT evaluated each of the traditional and new revenue sources and projected these over a 25-year planning

F I NA N C I A L LY

The new transportation bill, effective July 1,

period using conservative assumptions to

CONSTRAINED REVENUE

2015, represents new state funding sources

support a set of financially realistic investment

Recommendations for the 2040 SWTP/2015 SSTP are constrained to available projected revenue, to ensure the investment approach and expected performance impacts are feasible and implementable over the plan horizon. This

specifically for transportation purposes. The bill introduced the following changes:
State Motor Fuel Excise Tax Rates. The bill eliminated the state motor fuel sales tax and raised the state excise tax for gasoline

recommendations for the plan. The assumptions reflect current funding policy and revenue that is reasonably expected to be available over the life of the transportation plan.26,27
FORECAST METHODOLOGY

advances a key tenet of MAP-21 and the SSTP which promotes strategic, results-oriented investment decisions that optimize performance within a constrained funding environment.

and diesel vehicles, all starting on July 1, 2015. The new tax rates also will be indexed to inflation and to the rising fuel efficiency standards of vehicles.

To develop revenue projections, historical revenue information was compiled to determine appropriate growth rates over the 2040 SWTP/2015 SSTP plan horizon.

FUNDING OVERVIEW

Hotel/Motel Nightly Fee. A hotel/motel

45

fee was promulgated for each calendar day

Funding allocations from FHWA programs were

Transportation in Georgia has typically been

a room, lodging, or accommodations are

projected from the apportionments for the State

funded through federal funds and state

rented or leased.

of Georgia authorized for FY 2013 and FY 2014

revenues collected from taxes and fees related to the transportation sector. Traditionally, these sources have consisted of:

Heavy Vehicle Annual Impact Fee. An annual highway impact fee for heavy vehicles was implemented.

by MAP-21. Apportionments for Georgia were discounted by 8 percent, assuming that the
26 Appendix E Revenue Forecast provides

Federal Highway Administration Funds; Federal Transit Administration Grants;

Alternative Fuel Vehicle Fees. An alternative fuel vehicle annual registration

and in-depth review of Georgia's transportation funding sources and a detailed summary of the assumptions used to generate

State Motor Fuel Excise Taxes; and State General Fund Appropriations. While these sources have been effective

fee was implemented for commercial and noncommercial vehicles.
Tax Credits. Tax credits on low/zeroemission vehicles were eliminated.

revenue projections.
27 Local (non-federal or state) transportation revenues were also projected, but for informational purposes only. Locally generated revenue was projected as a cross-check on the long-term viability of local match for federal revenue projections. The SWTP/SSTP

in funding the existing transportation system, revenues have not been growing

did not, however, address the specifics of how local funds will be generated nor allocated over the life of the plan.

Revenue Projections

Obligation Authority for the State of Georgia is

were estimated at $44 billion28 (2013 dollars)

With the new state

92 percent, based on historic apportionments. After FY 2014, revenues were projected to grow

across federal and state sources over the 2040 plan horizon approximately $1.7 billion

revenue sources promulgated by the Transportation Funding Act of
2015, the net funding expected

at 1 percent per year, consistent with GDOT policy assumptions and the Congressional Budget Office (CBO) annual growth forecast of the Highway Trust Fund (HTF) over the next 10 years.
Georgia's FTA funding allocations for FY 2013 were obtained from MAP-21. Excluding Sections 5303 and 5304 (i.e., Metropolitan and Statewide Planning Program), total grant allocations were $168 million. An annual growth rate of 1 percent was assumed thereafter,

per year. With the new state revenue sources promulgated by the Transportation Funding Act of 2015, the net funding expected to be available from federal and state sources is estimated at $65 billion approximately $2.5 billion per year, an average annual revenue increase of 48 percent (Figure 20, page 46). Figure 21 (page 48) shows the anticipated revenues as annual estimates, in both year of expenditure dollars and in constant 2013 dollars.

46

to be available from federal and state

consistent with GDOT policy assumptions and CBO's growth forecast of the HTF.
Georgia's primary state funding source for

Figure 20. Georgia Transportation Revenue Projections 2015-2040,

sources is estimated at $65 billion

highway projects is from taxes collected on motor fuels. MFT revenue projections were developed using a methodology that recognized adopted fuel efficiency (Corporate

2013 Dollars

State Sources Federal Sources

$38.1

approximately

Average Fuel Economy (CAFE)) standards and

Billions,

$17.1

future automobile and truck travel demand.

$2013

$2.5 billion per year,

Table 1 (page 47) summarizes the assumptions

$26.7

$26.7

an average annual revenue increase

used for each of the revenue sources.
FUTURE REVENUE PROJECTIONS

Forecast Prior to 2015

Forecast Post 2015

of 48 percent.

Prior to the Transportation Funding Act of 2015, transportation revenue projections

Transportation Transportation

Funding Act

Funding Act

28 Net funding, after debt obligations are considered.

GEORGIA DEPARTMENT OF TRANSPORTATION STATEWIDE PLAN

Table 1. Revenue Assumptions

Funding Source

Assumptions

Federal Highway Administration

Georgia FY 2014 apportionments discounted by eight percent. Annual growth rate of one percent, consistent with GDOT policy. Metropolitan Planning and State Planning and Research funds were excluded.

Federal Transit Administration

Annual growth rate of one percent. No grants from Section 5309 Fixed-Guideway Capital Investment awarded. Metropolitan Planning programs and State Planning and Research funds were excluded.

State General Fund Appropriations

No allocation for highways; assumed constant allocation of $3 million in Year of Expenditure (YOE) for transit.

State Motor Fuel Excise Taxes

Fuel efficiency of the entire "on-the-road" fleet of cars and light trucks is consistent with AEO 2013 projections. Future annual growth of VMT projections is consistent with statewide travel demand model.

The excise tax rates are indexed to the average fuel economy of vehicles and to changes in the Consumer Price Index (the latter is only for the first

three fiscal years).

47

Hotel Night Fee

Revenue estimate range between $170-190 million per year (in nominal dollars) was assumed.

Heavy Vehicle

Fee of $50 for vehicles weighing between 15,500 and 26,000 pounds and of $100 for vehicles weighing more than 26,001 pounds.

Annual Impact Fee No annual growth was assumed for the number of heavy vehicles and fees are not indexed.

Alternative Fuel Vehicle Fees (AFV)

Annual fee of $200 for noncommercial vehicles.
Annual fee of $300 for commercial vehicles.
Fees are indexed to the average fuel economy of vehicles. Only for the first three fiscal years, the resulting fees will additionally be indexed to changes in the Consumer Price Index (CPI).
Fees applicable to vehicles operating on alternative fuel except for vehicles which operate primarily on compressed natural gas, liquefied natural gas, or liquefied petroleum gas.
Annual growth rate of 5 percent for electric vehicles.

Alternative Fuel Vehicle Tax Credits

Revenue estimate range between $15-18 million per year (in nominal dollars) was assumed.

Revenue Projections

Figure 21. Net Projected Federal and State Revenue by Year

Millions $5,000

$4,500

Projected Revenue in $2013

Projected Revenue in Year of Expenditure

$4,000

$3,500

$3,000

$2,500 48
$2,000

$1,500

$1,000

$500

$0 2015 2016 2017 2018 2019 2020 2021 2022 2023 2024 2025 2026 2027 2028 2029 2030 2031 2032 2033 2034 2035 2036 2037 2038 2039 2040
Note: Net revenue (after debt obligations are considered).

GEORGIA DEPARTMENT OF TRANSPORTATION STATEWIDE PLAN

F I NA N C I A L LY

bridges;30 a level that exceeds proposed

Bike/Pedestrian. Funding level reflects

UNCONSTRAINED REVENUE

MAP-21 performance thresholds.

continued funding for the federal Transportation

As part of 2040 SWTP/2015 SSTP development, an unconstrained revenue forecast was developed. The unconstrained revenue estimate is based on total programmatic transportation needs based on projected

Roadway Capacity. Funding levels needed to address LOS C and worse deficiencies across the statewide roadway network.
Transit Capacity. Funding level needed to address transit capacity needs across the

Alternatives Program at today's levels.
These maximum funding estimates were summed across all investment programs. Total funding needs which comprise the unconstrained revenue estimate are shown in Table 2 (page 49).

future deficiencies across seven investment

State, to include transit capacity projects

Table 2. Unconstrained

programs (pavement, bridge, roadway capacity,

included in constrained MPO long-range

Revenue Estimate

transit capacity, safety, operations, and bicycle/ pedestrian). With this approach, unconstrained revenue estimates are "reverse-engineered" given future transportation investment needs; i.e., total needs define total unconstrained revenues.

transportation plans, investment to support new transit service to underserved portions of urban areas, and expansion of rural human services transportation to currently unserved rural areas of the state; funding levels reflect

Investment Program

Annual Funding Needed to Address Needs (Millions/
Year)

Unconstrained Revenue Estimate
Total Funding Needed to Address
Needs Over Plan Horizon
(Billions)

capital funding only, not funding for ongoing

Pavement

$1,600

$40

To define the unconstrained revenue estimate

operations and maintenance.

Bridge

$350

$9

49

for each investment program, total funding needs were estimated in the following manner:

Operations. Funding level reflects a

Roadway

$800

$20

Capacity

maximum spending level that optimizes

Operations

$200

$5

Pavement. Funding levels needed to

performance across key operational

Safety

$230

$6

maintain toady's excellent pavement

investments reflected in 2040 SWTP/2015

Transit

$200

$5

conditions across the entire GDOT-owned,

SSTP analysis (signal coordination, ramp

Capacity

FAS; i.e., at approximately 100 percent of pavement in fair or better condition,29 a level that exceeds proposed MAP-21 performance thresholds.

metering, incident response).
Safety. Funding levels reflect a maximum spending level that optimizes safety impacts across key safety programs reflected in

Bicycle/ Pedestrian
Total

$50 $3,430

$1
$86 billion in investment need over plan horizon

Bridge. Funding levels needed to maintain today's excellent bridge conditions across the entire FAS; i.e. at, approximately 98 percent of bridge deck area on nonstructurally deficient

2040 SWTP/2015 SSTP analysis (intersection crashes and roadway departures).

The total needs-based, unconstrained revenue estimate is $86 billion. The total funding gap identified for the 2040 SWTP/2015 SSTP is approximately $21 billion over the life of the

29 As measured by IRI, the proposed MAP-21 performance measurement method for pavement.

30 As measured by NBIAS structural deficiency standards, consistent with the proposed MAP-21 performance measurement methods for bridges.

transportation plan ($86 billion in needs minus $65 billion in revenue projected).

Revenue Projections

PUBLIC AND S TA K E H O L D E R OUTREACH

public and stakeholders' views on existing and future transportation conditions, future needs and deficiencies, and desired transportation investments for various program areas.

Table 3. Public Involvement Market Segments

Market Segments

Description

OUTREACH METHODS

The general public interested in statewide

General Public All citizens of Georgia,

The Georgia DOT is committed to involving

transportation issues cannot be characterized

typically "casually interested"

state, regional, and local stakeholders and citizens across Georgia in its transportation

as a single, homogeneous group of individuals and organizations. The outreach methods

Wired and Hungry for News

Tend to be younger (though not entirely), actively "wired in" to various social and

planning decisions.31 At the inception of

defined for the 2040 SWTP/2015 SSTP were

electronic media outlets

the 2040 SWTP/2015 SSTP, a Public and Stakeholder Engagement Plan was developed to meet the following outreach objectives:

designed to accommodate a variety of public audiences ("markets") which differ in terms of demographic characteristics, preferred methods of receiving information, levels of understanding of

Highly Motivated to Participate

Individuals and organizations active in government activities, particularly engaged in transportation matters

Identify opportunities and activities

transportation issues, and personal attitudes towards

50

to receive input from a wide range of

transportation in Georgia (Table 3, page 50).

Not Traditionally

Less engaged, less access to technology, low level

stakeholders and citizens,

Involved

understanding of issues,

Meet all regulations pertaining to public engagement and transportation planning in

WHAT DID THE

Government

underserved communities Broad array of State,

Georgia, and

STAKEHOLDERS

and Public

regional, and local officials

Sector Partners and agencies, partners

Exceed the expectations of these regulations in terms of reaching an

TELL US?

in accomplishing the Governor's statewide goals

unprecedented number of Georgians to inform and involve them in the transportation planning process.

Preserve and maintain the existing system;
Provide access and mobility for everyone;

Business, Logistics and Economic Development

Represent the business interests in Georgia, as well as those who rely on the State's transportation network to support their

Outreach was conducted at each stage of the

Use resources efficiently;

business activities

plan development process to understand the

Support freight and goods movement;

Give Georgians more transportation

31 Reference Appendix H (Public Outreach) for detail on public outreach methods applied for the 2040 SWTP/2015 SSTP.

options; and Reduce congestion.

GEORGIA DEPARTMENT OF TRANSPORTATION STATEWIDE PLAN

Keeping in mind the various market segments identified in Table 3, tailored public engagement techniques were identified for each group. The following techniques provided opportunities for engagement:
A project web site served as a hub for project communications with the public by providing general information, surveys, and technical reports.
As part of the 2040 SWTP/2015 SSTP, GDOT developed an on-line scenario planning tool that enabled members

of the public to engage in investment scenario analyses. The tool allowed the user to define unique investment scenarios across seven investment program areas (pavement, bridge, road capacity, transit capacity, operations, safety, bike/pedestrian) within constrained revenue projections. For each scenario, the user was able to test the performance implications of assigned funding levels to better understand performance tradeoffs within a constrained funding environment.

In lieu of traditional public meetings, the project team attended seven festivals during October 2013 in each GDOT district to engage citizens. These festivals included: -- Georgia Apple Festival (District 6); -- Big Red Apple Festival (District 1); -- Atlanta Streets Alive (District 7); -- Shade Days in Gay (District 3); -- Kaolin Festival (District 2); -- Georgia Peanut Festival (District 4); and -- Rock Shrimp Festival (District 5).

A school curriculum transportation lesson

was prepared and provided to 5th graders

in each GDOT district. The lesson was

51

followed up with a family travel survey

students completed at home with their

parents. The survey was designed to gather

the thoughts and preferences on the local

and statewide transportation system, and

gain a better understanding of mobility

challenges faced by Georgians, particularly

those in EJ communities.

A Stakeholder Advisory Committee (SAC) was organized and convened to gather input from the Department's internal and external agency partners. Members in the SAC included representatives from the government and public sectors, along

Revenue Projections

The outreach efforts resulted in feedback from 2,455 surveys
1,383 on-line scenario planning surveys

with business stakeholders who rely on Georgia's transportation network to support their business activities.
Rural/local elected officials, counties and cities were engaged at annual conferences and invited to participate in a survey to collect information on transportation needs.

A Private-Sector Roundtable was held to engage representatives from Georgia's major industries and businesses in a discussion on transportation's linkages to economic development and discuss their preferred transportation investment strategies for the 2040 SWTP/2015 SSTP, specifically where goods movement is concerned.

128 surveys completed during

Georgia's MPOs were tapped for information on transportation needs through the Georgia Association of Metropolitan

These focused techniques allow for targeted engagement. Table 4 (page 52) shows the engagement techniques used throughout the

the coordination with

Planning Organization (GAMPO) meetings.

2040 SWTP/2015 SSTP by market segment.

local/rural elected

Table 4. Audiences Targeted by Engagement Technique

52

officials, counties and cities 605 surveys

Engagement Technique

General Public

Wired and Hungry for News

Highly Motivated to Participate

Not Traditionally
Involved

Government and Public
Sectors

Business, Logistics and
Economic Development

collected at community

Project Web Site













outreach events

On-line Scenario Planning Tool













Community Outreach









241 surveys completed on the project web site

School Curriculum/ Family Travel Survey



Stakeholder Advisory Committee (SAC)







98 travel surveys collected during the school curriculum outreach

Coordination with Rural Local Elected Officials/ Counties/Cities
Coordination with Metropolitan Planning Organizations (MPO)
Private Sector Roundtable




OUTCOMES OF OUTREACH EFFORTS
The varying public involvement techniques were used throughout the 2040 SWTP/2015 SSTP development process providing insight on what issues matter to residents, officials, and businesses from all areas of the State. The varying types of techniques allowed all audiences a chance to become involved in the SWTP/SSTP process, develop a better understanding of past and future trends of the State's transportation network, and provide input into long-term investment policy.
The outreach efforts resulted in feedback from 2,455 surveys (1,383 on-line scenario planning surveys, 128 surveys completed during the coordination with local/rural elected officials, counties and cities; 605 surveys collected at community outreach events, 241 surveys completed on the project web site, and 98 travel surveys collected during the school curriculum outreach). Information was also presented to stakeholders across eight key meetings (three Stakeholder Advisory Committee meetings, two rural/local elected officials' conferences, two MPO conferences/meetings, and one private sector round table meeting).

GEORGIA DEPARTMENT OF TRANSPORTATION STATEWIDE PLAN 53

Plan Recommendations

A performance-

PLAN RECOMMENDATIONS
INVESTMENT SCENARIOS

As part of plan development, a tradeoff analysis tool32 was developed to allow GDOT to explore options for allocating money among six program areas Pavement, Bridge,

based tradeoff

Transportation needs in Georgia outweigh

Roadway Capacity, Roadway Operations, Safety, and Transit Capacity. The tool is

expected revenues. While the Transportation

analysis was

Funding Act of 2015 provides a significant

based on the relationship between funding

and performance for each program area

applied as part

infusion of revenue to the State, transportation and associated economic development needs

allowing GDOT to consider performance

implications of investment over the long

of the 2040

remain. A key part of the 2040 SWTP/2015 SSTP planning process was to determine how

term. The user can control how much total

funding is available for distribution across

SWTP/2015 SSTP

best to allocate limited funds in a manner that optimizes performance and supports progress

all investment programs, within constrained

revenue projections of $65 billion (across

effort to support a

towards long-term transportation goals and

federal and state revenue sources).

54

objectives. For example, how much money

Performance impacts of programmatic funding

data-driven and

should be spent on preserving the existing

levels were estimated in the year 2040 given

transportation network versus expanding it?

structured process

Or within the preservation program, how much

average annual funding levels assigned to each program between the years 2015 to

should be allocated to pavement needs versus

for exploring the

bridge needs? All transportation agencies face

2040. As the dollar amount of investment is increased, the underlying performance

these types of tough decisions. Most agencies

performance

address them through a combination of historic

of each asset category improves. As more dollars are expended, performance improves

funding precedent and/or ad hoc policy

implications of

development. In contrast, a performance-based

until eventually it levels off at high levels of

expenditure. This flattening out point on the

potential investment

tradeoff analysis was applied as part of the 2040 SWTP/2015 SSTP effort to support a data-

curve is where the optimal economic level of

investment lies, or where the "biggest bang

scenarios.

driven and structured process for exploring the performance implications of potential

for the buck," is achieved.

investment scenarios.

32 Optics Performance Dashboard, Cambridge Systematics, 2015.

GEORGIA DEPARTMENT OF TRANSPORTATION STATEWIDE PLAN

Table 5. Performance Measures Applied for Investment Tradeoff Analysis

Investment Program Pavement

Performance Measure

Current Performance

Percent lane-miles fair or better conditiona 100 percent (federal-aid, GDOT owned)

Figure 22 (page 56) presents two investment scenarios resulting from the tradeoff analysis. In both scenarios funds are allocated based on the following:

Bridge

Percent Deck Area on Nonstructurally Deficient Bridgesb

98 percent (federal-aid)

1. Funding needed to meet minimum pavement and bridge performance

Roadway Capacity Roadway Operations

User Delay Savings

$32 million lost to delay today $73 million lost to delay in 2040 (under a baseline/no-build scenario)

thresholds as required by MAP-21. 2. Emphasis areas defined in the SSTP

Safety Transit Capacity

Fatality Reduction Percent Population Accessible to Transit

1,170 fatalities per year (2014) 81 percent

which endorse relatively high investment in highway preservation and operational improvements, in core transit operations,

a As measured by IRI, the proposed pavement performance measure for MAP-21. MAP-21 establishes a minimum

and strategic investment in highway capital

threshold of 95 percent lane miles in fair or better condition on the Interstate System.

expansion projects.

b Consistent with the proposed bridge performance measure via MAP-21. MAP-21 establishes a minimum

threshold of 90 percent deck area on nonstructurally deficient bridges for the National Highway System.

SCENARIO PERFORMANCE BY

INVESTMENT PROGRAM

55

Performance was measured for each program

support federal performance requirements.33

using one select performance measure, capable of reflecting network-level impacts of varying fund levels and where underlying data and tools supported modeling future performance impacts (Table 5, page 55). All performance measures were aligned, where possible, with anticipated federal

Bicycle and pedestrian investment was also reflected in the tradeoff analysis through a continued set-aside of two percent funding for stand-alone multimodal investments, consistent with today's federal Transportation Alternative Program funding levels.

The performance impacts of each scenario is presented by investment program. The first scenario (Traditional Revenue) demonstrates performance impacts in the year 2040 given revenue projections of $44 billion based off of traditional revenue sources, prior to the Transportation Funding Act of 2015. The second scenario (New Revenue)

performance metrics that will be established through MAP-21 performance monitoring regulations. These measures support planning-level, predictive analysis of performance impacts in the year 2040 to

33 These performance measures differ in application from the measures applied through GDOT's Performance Management Dashboard. Both sets of performance measures evaluate progress towards the same investment goals, with federal/ MAP-21-oriented measures supporting predictive planning-level measurements and state/ GDOT-specified measures supporting empirical performance monitoring and progress reporting.

reflects performance implications with the final revenue projections of $65 billion, as enabled by the Transportation Funding Act. Both are compared to a 2040 baseline scenario assuming current spending levels by investment program are carried forward in the future.

Plan Recommendations

As indicated in Figure 22, the New Transportation Revenue scenario defines a funding allocation that optimizes performance across all investment programs. Key highlights

Figure 22. Performance Impacts of Alternative Investment Scenarios

Safety (Fatality Reduction)

124 115 113

of this scenario include:
Increased total safety spending resulting in continued fatality reductions over the

Existing Pavement (Percent in Fair or Better Conditiona)

Int = 95% | Other NHS = 90% | Other FAS/GDOT = 85% Int = 95% | Other NHS = 85% | Other FAS/GDOT = 30% GDOT FAS = 22%

plan horizon; Pavement and bridge conditions
that meet anticipated federal

Existing Bridge (Percent Deck Area on Non-Structurally Deficient Bridges)

FAS = 90% FAS = 90% FAS = 90%

performance thresholds; A significant decrease in congestion and

Roadway Capacity ($ User Savings)

$34M

$48M $48M

increase in user delay savings due to

56

roadway capacity improvements, even at a lower capacity spending level than today;

Operations ($ User Savings)

$58M $52M $47M

Increased roadway operations spending yielding significant auto and truck delay savings (and corresponding increase

Transit Expansion (Percent Population Served)

93% 86% 81%

in user delay savings) across the highway network; Significantly increased access to transit

Bicycle/Pedestrian

2%

(Percent Total Funding) 2%

2%

across both urban and rural populations in the State; and
Increased funding for bicycle and pedestrian capital investments at a level that mirrors today's (percentage) funding allocations.

Investment Program (Performance Measures)

$0

$5

Legend New Transportation Revenue Scenario
Traditional Revenue Scenario
Current Spending Scenario

$10

$15

$20

$25

$30

($) Billions Spent over 2040 Plan Horizon

Average Annual Funding New: $2,595 million Traditional: $1,760 million Current: $1,629 million

New: $65 billion

Plan Horizon Funding Traditional: $44 billion Current: $42 billion

aInt = Interstates Other NHS = All Non-Interstate on National Highway System (NHS) Other FAS/GDOT = Remaining Federal Aid System (FAS), GDOT Owned

GEORGIA DEPARTMENT OF TRANSPORTATION STATEWIDE PLAN

Table 6. Total Estimated Economic Impact of Alternative Investment Scenarios

Employment (Permanent Jobs Created Over Plan Horizon)
Gross State Product (in Millions of 2014$)
Personal Income (in Millions of 2014$)
Cost Savings per Georgia Licensed Driver per Year (in 2014$)

Current Spending Scenario
-7,179
-$20,245 -$13,594
-$183

Traditional Revenue Scenario
9,440
$27,361 $16,108
$144

New Revenue Scenario
10,618
$30,677 $17,884
$158

Under the New Revenue Scenario
with an SSTP Investment Focus,

a REMI economic projections conducted for 2040 SWTP/2015 SSTP.

economic growth

ECONOMIC IMPACT OF INVESTMENT SCENARIOS

Spending Scenario, Georgia will see negative economic impacts across all three economic

across all three key

The economic impacts of each scenario were also analyzed and are summarized in Table 6

metrics over the plan horizon; i.e., jobs, GSP, and personal income will not grow as fast as projections

metrics is accelerated.

(page 57). Economic impacts were derived from the changes in total transportation costs

indicate. Further, increased transportation cost resulting from this investment scenario is estimated

Additionally, each

57

for residents and businesses due to roadway improvements, lower vehicle operating costs

to represent, on average, an additional expenditure of nearly $183 per Georgia licensed driver per

Georgia licensed

for personal and commercial vehicles given improved pavement conditions, and growth

year. In contrast, increased transportation spending under the Traditional Revenue Scenario with an

driver is anticipated to

stimulated by multimodal improvements.34 These economic benefits reflect the cumulative

SSTP investment focus are expected to yield $144 in cost savings per year per Georgia licensed driver

save nearly $160 per

economic impacts over the plan horizon.
Georgia's economy is projected to expand by an average annual rate of 2.3 percent through 2040.35 As summarized in Table 6, under a Current
34 Reference Appendix H for more detail on economic impact analysis.
35 REMI economic projections conducted for 2040 SWTP/2015 SSTP.

due to reduced congestion and better pavement quality. Under the New Revenue Scenario with an SSTP Investment Focus, economic growth across all three key metrics is accelerated. Additionally, each Georgia licensed driver is anticipated to save nearly $160 per year due to reduced congestionrelated delays and improved pavement conditions.

year due to reduced congestion-related delays and improved pavement conditions.

Plan Recommendations

PREFERRED INVESTMENT SCENARIO
The investment scenario/tradeoff analysis produced funding amounts by key investment program and a corresponding set of realistic, achievable performance levels as reflected in the New Transportation Revenue Scenario.

Figure 23. Recommended Funding Split Across Investment Programs

$1.3 (2%)

Total Revenue = $65 Billion

$5.1

$5.8

(8%)

(9%)

$3.6 (6%)

Safety Existing Pavement Existing Bridge Roadway Capacity

These "funding targets" provide GDOT a general investment portfolio which optimizes performance across investment programs, within constrained revenue projections (Figure 23, page 58). The

Operations Transit Expansion Bicycle/Pedestrian

funding split reflects adequate funding needed to achieve minimum federal performance thresholds, while still supporting SSTP/state-oriented

$16.5 (25%)

$26.8 (41%)

58

investment objectives.

These funding

"targets" provide

$5.9 (9%)

GDOT a general

investment portfolio which optimizes performance across investment programs, within constrained revenue projections.

RECOMMENDED INVESTMENT STRATEGIES
The 2040 SWTP/2015 SSTP investment recommendations are presented here as key investment strategies for the programs summarized above, as well as intermodal programs evaluated during plan development.

Recommendations are derived from the needs analysis that was conducted for each transportation mode and are intended to serve as guidance for how to spend available revenue within each mode over the plan horizon. These investment recommendations are mirrored between the 2040 SWTP and 2015 SSTP.

GEORGIA DEPARTMENT OF TRANSPORTATION STATEWIDE PLAN

Pavement

Safety

Intermodal (Freight-Rail, Ports, Aviation)

Aggressive investment in pavement over

Implement Strategic Highway Safety Plan.

Continue to promote and enhance

today's spending levels to meet federal and

Continued focus on high crash intersections

rail safety.

state performance expectations, reduce

and roadway departure improvements

Collect more data on tracks and bridges,

commercial and private vehicle operating

to reduce serious injuries and fatalities

hazardous materials, grade crossings.

costs, and improve safety.

resulting from infrastructure deficiencies.

Collaborate with neighboring states on

Invest on priority corridors (e.g., priority

Continued, aggressive education efforts on

regional solutions to freight challenges.

freight corridors, Interstate Highway System).

safety needs to address fatality reductions,

Increase goods movement by rail; e.g.,

Reconsider size of Federal Aid System to

in particular.

support GDOT-owned short line upgrades,

reduce overall pavement maintenance burden over time.

Transit Capacity

remove key freight bottlenecks, improve grade crossings.

Bridge Continued investment in bridge network

Continue to support fixed route service in urbanized areas not currently served and expanded/improved transit to underserved

Improve port-rail access, storage and operating efficiencies.

at approximately today's funding levels to

portions of urbanized areas.

Improve last-mile connections to intermodal

59

maintain and improve overall system and meet

Continue to support expansion of rural

facilities (port, aviation, rail).

federal and state performance expectations.

transit to counties without rural human

Modernize systems to accommodate more

Roadway Capacity

services transportation.

stringent federal standards.

Focus roadway capacity expansions on priority freight corridors.

Support transit enhancements for existing service, e.g., new park-and-ride facilities inside and outside of metro Atlanta, express

Roadway Operations

bus expansion in Atlanta.

Improve network reliability through managed lanes systems in metro Atlanta.
Continue to apply comprehensive operational investments (e.g., ramp metering, incident response, signal coordination).

Bicycle/Pedestrian
Continue to implement GDOT complete streets policy.
Improve tracking and reporting of bicycle and pedestrian funding allocations.

2015 Statewide Strategic Transportation Plan

2015 STATEWIDE S T R AT E G I C T R A N S P O R TAT I O N PLAN

planning process that was outcome-driven, return-on-investment oriented, and based on best practices from the public and private sectors. The original transportation goals and objectives were developed through a process

approach. This approach guides funding across three investment categories Statewide Freight and Logistics, People Mobility in Metro Atlanta, and People Mobility (excluding Metro Atlanta) and four integrated investment strategies

INTRODUCTION

designed to understand what is important to Georgia's transportation customers, addressing

system preservation, core transit operations, improved roadway operations, and strategic

The Statewide Strategic Transportation Plan

four key questions:

roadway capacity expansion that is coupled

(SSTP) is the official, comprehensive, fiscally constrained transportation plan that includes projects, programs, and other activities to support implementation of the State's strategic transportation goals and policies. The SSTP was first approved by the State Transportation Board

1. What do Georgia's citizens and businesses expect and need from their transportation network?
2. What levels of performance will attract and keep businesses and talent in

with improved land use planning.
The 2015 SSTP serves as the second biennial revision of the SSTP as required by state law. It carries forward the same investment philosophy outlined in the inaugural SSTP with an emphasis on:

and Governor in June 2010 setting the strategic

Georgia's economy?

1. Alignment with the long-range 2040 SWTP

60

direction for future transportation investment

3. What characteristics or features in a

through investment goals and objectives.

within the State. It was subsequently updated in September 2013 and has been updated a second time, herein, as part of the 2040 SWTP/2015 SSTP in keeping with the required biennial update cycle.
The 2010 SSTP was originally developed to make the "business case" for transportation investment in the State of Georgia and directly helped to advance two critically important state transportation funding initiatives the Regional Transportation Referendum promulgated through the Transportation Investment Act of 2010 and, most recently, the Transportation Funding Act of 2015. It followed a strategic

transportation system will make Georgia an attractive place to live?
4. What will it take in terms of investment to drive growth across the State?
It concluded that an investment strategy that focused on maximizing the performance of the existing system along with more strategic and cost-effective capital investments could transform Georgia's transportation network. Recognizing the unique investment needs across the State, the SSTP focused on increasing Georgia's return on transportation investment through a tailored investment

2. Updated priority investment strategies to align with long-range SWTP recommendations.
3. Specification of an execution framework to support performance monitoring efforts needed to improve investment decisionmaking for the SWTP and SSTP efforts moving forward.
KEY DEVELOPMENTS SINCE 2013 SSTP
While developments at the federal level are nominal as final regulations to implement key

GEORGIA DEPARTMENT OF TRANSPORTATION STATEWIDE PLAN

MAP-21 provisions are delayed and reauthorization

laws. Seventy-five percent of each region's

three years to advance 145 projects. That is

of federal funding is being managed through

proceeds will be used to fund the projects

more than three years of funding that GDOT

continued short-term funding extensions, there

on the final investment list that was approved

provides to all local governments. It also is

has been significant activity at the state level as it

by the Regional Roundtable made up of

greater than one-third of the total federal

relates to transportation funding. Sales tax revenue

mayors and county commissioners from the

funds Georgia receives each year. These

collections continue in the three regions where

region. The remaining 25 percent of each

funds can be put to numerous transportation

the Transportation Investment Act passed,

region's proceeds will be divided among the

uses by local governments on everything

supporting the expedited delivery of a number

region's local governments to be spent on

from projects to equipment to operations. In

of local transportation investments. In addition,

transportation projects of each government's

addition, projects completely funded with state

the Transportation Funding Act of 2015 was

choosing. That money is distributed

revenue such as this, avoid often lengthy and

implemented yielding a stable, long-term

using a formula based on population and

cumbersome federal processes for project

statewide transportation funding source for the

road mileage.

delivery allowing them to be delivered quicker.

State of Georgia.

In January of this year, RTR projects were the

The sales tax is expected to increase

REGIONAL TRANSPORTATION

transportation investments by a collective

only ones that advanced while GDOT had over

REFERENDUM (UPDATE)

total of $1.8 billion over the 10-year life span

100 federal-funded projects on hold due to lack of federal funds.36

61

The Transportation Investment Act of 2010 (TIA),

of the tax, across the three regions where the

which enabled the Regional Transportation

referendum passed.

In January of this year,

Referendum, created 12 special districts in Georgia and provided the citizens in each the opportunity to vote on a 10year, one percent regional transportation sales tax to fund a list of transportation projects selected by their local elected officials. Three regions (the Central Savannah River District, the River Valley District, and the Heart of Georgia District) approved the referendum on July 31, 2012.
As required by TIA, the funds collected in

Over $352 million in RTR revenue has been collected in the three regions in less than
Over $352 million in RTR revenue has been collected in the three regions in less than three years to advance

RTR projects were the only ones that advanced while GDOT had over 100 federal-funded projects on hold due to lack of federal funds.

each region must be spent in the region and are not subject to congressional balancing

145 projects.

36 http://www.dot.ga.gov/AboutGeorgia/Pages/ PostDetails.aspx?blogID=11.

2015 Statewide Strategic Transportation Plan

GEORGIA DEPARTMENT OF TRANSPORTATION STATEWIDE PLAN

TRANSPORTATION FUNDING ACT OF 2015

26,000 pounds and $100 for vehicles weighing more than 26,001 pounds.

The new revenue enabled by the

On May 4, 2015, the Georgia Transportation Funding Act of 2015 (House Bill 170) was signed into law. The new transportation bill, effective July 1, 2015, represents new state funding

Alternative Fuel Vehicle Fees. Institutes a $200 noncommercial and a $300 commercial alternative fuel vehicle annual registration fee.

Transportation

sources specifically for transportation purposes. The new bill introduced the following changes:

Tax Credits. Eliminates the $2,500/$5,000 tax credits on low/zero-emission

Funding Act

State Motor Fuel Excise Tax Rates. The

vehicles, respectively.

of 2015 yields

bill eliminated the state sales tax and raised the state excise tax from 7.5 cents per

The new revenue enabled by the Transportation Funding Act of 2015 yields

approximately

gallon to 26 cents per gallon for gasoline and to 29 cents per gallon for diesel, all

approximately $38 billion over the life of the plan, an increase in state revenue of

starting on July 1, 2015. The new tax rates

approximately $20 billion or 123 percent.

62

$38 billion over

will annually be indexed to the rising fuel

2040 STATEWIDE

the life of the

efficiency standards of vehicles. The tax rates also will be indexed for Consumer

TRANSPORTATION PLAN

plan, an increase

Price Index (CPI) increases up to fiscal year (FY) 2019, with future indexing being tied

In May 2013, GDOT initiated the required update to its long-range statewide

in state revenue

only to the fuel efficiencies (e.g., Corporate Average Fuel Economy (CAFE) standards).

transportation plan the 2040 SWTP. A key objective of the plan update was the

of approximately $20 billion or 123 percent.

Hotel/Motel Nightly Fee. A $5 per night hotel/motel fee for each calendar day a room, lodging, or accommodations are rented or leased (excludes extended stay rentals).
Heavy Vehicle Annual Impact Fee. Addition of an annual highway impact fee for heavy vehicles at a rate of $50 for vehicles weighing between 15,500 and

integration and alignment of the SSTP to ensure a consistent planning process and a corresponding set of investment recommendations to guide GDOT investment decisions in the future. The 2040 SWTP/2015 SSTP combines the traditional transportation analyses of the federally required long-range transportation plan with the strategic business

GEORGIA DEPARTMENT OF TRANSPORTATION STATEWIDE PLAN

case for transportation investment required by

goals established via MAP-21.37 They also

PERFORMANCE MEASURES

the State. It provides a comprehensive look at transportation issues and investment needs in Georgia now and through the year 2040.
ALIGNING THE 2040 SWTP AND 2015 SSTP
Both the 2040 SWTP and 2015 SSTP require adherence to performance-based planning principles to ensure both federal and state strategic planning needs are addressed. As part of 2040 SWTP and 2015 SSTP development, an integrated performance framework was developed to ensure the SWTP and SSTP were developed in a coordinated

support Georgia Governor Nathan Deal's vision for a lean and responsive state government that allows communities, individuals, and businesses to prosper, including the Governor's goals to: reduce injury and loss of life on Georgia's roads; improve the movement of people and goods across and within the State; leverage public-private partnerships and improve intergovernmental cooperation for successful infrastructure development; and expand Georgia's role as a major logistics hub for global commerce.
OBJECTIVES

The performance measures applied as part of 2040 SWTP/2015 SSTP reflect a discrete set of evaluation criteria used to evaluate performance tradeoffs of potential investment scenarios in context of long-range goals. The performance measures are planning level, and predictive in nature, supporting a performance snapshot in the year 2040. They align with anticipated federal performance measures associated with MAP-21 performance monitoring requirements.
ALLOCATE RESOURCES/

and complimentary manner and that

Transportation objectives reflect specific

FUNDING TARGETS

63

investment recommendations ensure progress towards a consistent set of long-range investment goals. The performance framework is shown in Figure 24 (page 64). The following is a summary of each step in the process as applied for the 2040 SWTP/2015 SSTP to inform plan recommendations.
GOALS
Transportation goals have been directly

strategies that will be applied to achieve longterm goals. For the 2040 SWTP/2015 SSTP transportation objectives reflect the investment categories and priorities defined as part the SSTP investment philosophy since its inception. Integrating SSTP investment categories in this manner allows the unique Georgia investment philosophy to define the methods for supporting federal transportation needs as well as the State's own specific investment needs.

Resource allocation is the first key step within the SSTP execution framework, linking planning recommendations to funding decisions. Within the 2040 SWTP/2015 SSTP process, funding targets were developed as part of a constrained investment tradeoff analysis to support optimal performance across key investment programs over the plan horizon.

aligned for the 2040 SWTP and 2015 SSTP.

They reflect desired, long-term outcomes

for transportation investment. The goals are consistent with the national transportation

37 MAP-21 also includes a goal related to Improved Project Delivery that is addressed through SSTP implementation.

2015 Statewide Strategic Transportation Plan

Figure 24. 2040 SWTP/2015 SSTP Performance Framework

Outcomes that support Federal and state needs

Improve safety

Improve reliability

Goals

Reduce congestion

Maintain and preserve

Improve freight/ economic growth

Improve environment

Statewide strategies to achieve goals

- Aggressive investment in pavement and bridges

Objectives
- Target roadway departure and intersection improvements to reduce fatalities related to roadway infrastructure

Statewide Freight and Logistics - Freight bottleneck and capacity relief - Last mile access/connectivity - Support modernized system

People Mobility in Metro Atlanta - Managed lanes - Comprehensive operational investments - Expand/improve transit in
underserved areas

People Mobility Outside Metro Atlanta - Rural transit service in unserved areas - Fixed route service in unserved
urbanized areas

Performance Measures

64

Criteria used to predict long-term performance of investment approach

Fatality reduction

Percent pavement fair or
better condition

Percent bridge deck area on Non-SD bridges

Delay and user cost savings

Percent population served
by transit

SSTP Progress Report

Funding allocation by investment program over 2040 plan horizon
STIP annual programming that aligns with funding targets over time

Execution Framework Allocate Resources (Funding Targets) See recommended fund split for 2040 SWTP/2015 SSTP
Implement Projects

Observed progress towards investment goals

Reduce fatalities by 41 per year

Monitor Outcomes (Performance Targets)

Reduce incident response to 10 minutes or less

40 mph and peak hour speeds
(Interstate, GP lanes)

85% bridges meet or
exceed GDOT standards

90% or more pavement
meeting GDOT standards

Reduce congestion cost in
Atlanta 10% per year, per commuter

GEORGIA DEPARTMENT OF TRANSPORTATION STATEWIDE PLAN

IMPLEMENT PROJECTS

targets so that they can better inform future

Investment strategies are summarized and

Project implementation through effective project delivery is the second critical piece of the SSTP execution framework. Within the performance framework, this necessitates annual programming through the GDOT Statewide Transportation Improvement Program (STIP) to be brought in line with long-range funding targets over time.

funding decisions.
SSTP PROGRESS REPORT
The purpose of the SSTP Progress Report is to track the execution of the SSTP and to measure the resulting performance of Georgia's transportation network. Results of the monitoring and reporting process are intended to service as a key feedback mechanism between outcomes

organized in Table 7 (page 66) by SSTP
investment category. Note that recommended
strategies that apply to all categories (Statewide
Freight and Logistics, People Mobility in Metro
Atlanta, People Mobility Excluding Metro Atlanta)
are included separately.
Figure 25. Recommended Funding Split over Plan Horizon In Billions

MONITOR OUTCOMES/

and investment decisions to support improved

$1.3 (2%)

PERFORMANCE TARGETS
Performance targets define the point at which a goal is achieved. Executing the SSTP

planning and decisionmaking.
2040 SWTP/2015 SSTP INVESTMENT

$5.1

$5.8

(8%)

(9%)

$3.6

(6%)

includes setting performance targets that, if

RECOMMENDATIONS

65

attained, would advance the State's strategic transportation goals.
Performance targets support 2040 SWTP/2015 SSTP goals and align directly with the

The integrated, performance-based approach applied as part of plan development yielded a recommended funding split across key investment programs and a set of priority

$16.5 (25%)

$26.8 (41%)

Department's performance management

investment strategies to guide decisionmaking

system, the "GDOT Performance Management

in the future (Figure 25, page 65).

$5.9

Dashboard."38 Integration via the Performance

Recommendations were based off of a detailed

(9%)

Management dashboard ensures GDOT is

needs analysis across transportation modes.

measuring and reporting progress in a consistent and uniform fashion. It also enables more specific statewide performance thresholds, above and beyond federal thresholds, to be prioritized and effectively communicated through statewide

They emphasize priority strategies to be applied within a constrained funding environment. The same set of priority investment recommendations are represented in the 2040 SWTP and 2015 SSTP.

Total Revenue = $65 Billion

Safety

Operations

Existing Pavement

Transit Expansion

Existing Bridge

Bicycle/Pedestrian

Roadway Capacity

38 http://www.dot.ga.gov/BS/Performance/.

2015 Statewide Strategic Transportation Plan

Table 7. 2040 SWTP/2015 SSTP Investment Strategies by SSTP Investment Category

SSTP Investment Category All Categories
Statewide Freight and Logistics

Investment Strategies Aggressive spending on pavement, with emphasis on priority corridors (e.g., Interstate System and priority freight
corridors); reconsider size of Federal Aid System to reduce pavement maintenance burden over time. Continued aggressive spending on bridges across the entire Federal Aid System. Implement SHSP Target roadway departure and intersection crashes to reduce fatalities associated with
roadway infrastructure. Continued implementation of complete streets policy. Focus roadway expansion on priority freight corridors. Improve rail safety, data collection and collaboration. Support short-line upgrades. Remove bottlenecks and improve grade crossings. Improve last-mile access to intermodal facilities. Improve port-rail access, storage and operating efficiencies. Support modernized system.

66

People Mobility in Metro Atlanta

Improve network reliability through managed-lanes systems and comprehensive operational investments.

Expand/improve transit in underserved portion of region.

People Mobility Excluding Metro Atlanta

Support fixed-route service to urbanized areas currently unserved. Expand rural transit service to unserved counties.

IMPLEMENTING THE SSTP
The execution framework within the performance-based planning process developed for the 2040 SWTP/2015 SSTP (Figure 24, page 64) provides the key link between long-term planning decisions and onthe-ground change. It requires annual, shortterm programming decisions made through

the STIP to evolve over time so that they support the investment portfolio envisioned through the long-range plan. Tracking funding allocations at the programmatic level is recommended for future SWTP/SSTP updates to monitor funding trends over time.
In addition to tracking at the programmatic level, monitoring project delivery will continue to be a focus of the SSTP. Project

implementation is also now a priority within federal legislation which defined Project Delivery as one of the national goals in MAP21. GDOT currently tracks project delivery through its Performance Management Dashboard which tracks and reports Rightof-way Authorized on Schedule, Construction Authorized on Schedule, and Projects Constructed on Schedule.

GEORGIA DEPARTMENT OF TRANSPORTATION STATEWIDE PLAN

While overall project delivery trends have

construction work program and STIP. GDOT

estimates a conservative 12-month time

improved over the last decade, reduced

can deliver these projects using a streamlined

savings for a standard roadway capacity

resources and funding challenges have made

delivery process (state process) that will ensure

improvement delivered through the state

meeting project schedules a challenge more

a shorter project delivery time than is normally

process. This time savings is estimated for

recently. GDOT continues to use strategies

achieved through the federal project delivery

the environmental review phase only.

such as "cradle to grave" project managers; stabilization of projects in the STIP; innovative delivery methods and coordination with partnering agencies to meet this challenge.39

process (the federal process).
The streamlined state process is outlined in the GDOT Plan Development Process (PDP) Manual and applies to projects (both state

Projects that are entirely state funded, particularly large, complex projects, may also benefit from additional flexibility to apply innovative Design-Build project delivery

Tracking funding

and local funded projects) developed through the Georgia Environmental Policy Act of 1991

methods. New roadways, interchanges, bridges/tunnels, managed lanes projects

allocations at the

(GEPA).40 The state process includes the

as an example may benefit from private

programmatic level is

same major steps as the federal process, but with significantly more flexibility in terms of

sector expertise and innovation in design, construction, financing, and operations/

recommended for future

scheduling the phases of project delivery. For

maintenance. These projects may be most

67

SWTP/SSTP updates to monitor funding trends over time.

example, the state process allows:
Overlapping major process steps which means that subsequent steps may begin before a preceding step has been completed; and

appropriate for application of innovative delivery methods as these larger projects would yield the greatest potential for time and cost savings associated with expedited delivery. National literature cites innovative project delivery impacts of between 3-14

The passage of a stable, state-supported

Right-of-Way acquisition to begin early

percent reduction in project duration and

transportation revenue source via the

in project development, before or after

between 2-5 percent reduction in project cost

Transportation Funding Act of 2015 will also

GEPA approval.

as a result.41 This enables federal funding to

provide additional opportunity to improve project delivery. The new state funding source will allow for a large increase in the number of wholly state funded projects within the State
39 http://www.dot.ga.gov/BS/Performance.

While efficiencies associated with delivering projects through the state process will vary by project type and context, GDOT currently
40 http://www.dot.ga.gov/PartnerSmart/ DesignManuals/PDP/PDP.pdf.

be directed towards "shovel-ready" general
41 Research conducted as part of 2040 SWTP/ 2015 SSTP; reference National Institutes of Standards and Technology, Construction Industry Institute, University of Colorado-Boulder, NCHRP Synthesis 379 (2008), Hale (2009), Shrestha et al. (2010), Minchin et al. (2013).

2015 Statewide Strategic Transportation Plan

maintenance, safety, or operations investments

The SSTP Progress Report reviews current

that are not likely to have significant

performance status and trends related to the

The SSTP

environmental review challenges, allowing the entire federal/state funded transportation

performance targets identified in GDOT's Performance Management Dashboard. A

Progress Report helps the state

program to be delivered more quickly.
Project/plan delivery and SSTP implementation will be tracked and reported

snapshot of current performance is provided in Figure 26 (page 69).

make prioritized

through the SSTP Progress Report. State law requires the GDOT Director of Planning to

transportation

report annually on the progress of projects and programs in the SSTP. The SSTP Progress

investment

Report helps the State make prioritized transportation investment decisions by

68

decisions by

monitoring the execution of the SSTP and the performance of the transportation system

monitoring the

throughout the State including:

execution of the

Measuring the performance of Georgia's existing transportation network in order to

SSTP and the

demonstrate the extent to which the State is on the right track toward achieving it's

performance of the transportation system throughout

transportation goals; Ensuring plans for Georgia's future
transportation network support the goals and objectives of the SSTP; and Monitoring the implementation of

the State.

Georgia's transportation plans to ensure the on-time and on-budget delivery of

strategic investments.

GEORGIA DEPARTMENT OF TRANSPORTATION STATEWIDE PLAN

Figure 26. GDOT Performance Management Dashboard

SAFETY

MAINTENANCE

PLANNING AND CONSTRUCTION

Performance Measures

Value

Target

Status

Reduction in Annual Highway Fatalities
AREA: STATEWIDE Year: 2014

19 Fewer Fatalities

41 Fewer Fatalities

-100

100

Average HERO Response Time
AREA: STATEWIDE Year: 2014

13 Minutes

10 Minutes

0 mins

20 mins

Percent of State-Owned Bridges Meeting GDOT Standards AREA: STATEWIDE Year: 2014

92%

85%

0%

100%

Percent of Interstates Meeting Maintenance Standards

74%

AREA: STATEWIDE Year: 2014

90%

0%

100%

Percent of State-Owned Non-Interstate Roads Meeting

73%

Maintenance Standards AREA: STATEWIDE Year: 2014

90%

0%

100%

Percent of Right-of-Way Authorized On Time
AREA: STATEWIDE Year: 2014
Percent of Construction Authorized On Time
AREA: STATEWIDE Year: 2014

56%

75%

0%

100%

69

69%

80%

0%

100%

Percent of Projects Constructed On Time
AREA: STATEWIDE Year: 2014

76%

80%

0%

100%

Percent of Projects Constructed On Budget
AREA: STATEWIDE Year: 2014

93.91%

90%

0%

100%

Annual Congestion Cost Per Peak Auto Commuter
AREA: STATEWIDE Year: 2014

$1,130

10% Reduction in Cost per Year
$0

$2,000

Morning Peak-Hour Speeds on General Lanes
AREA: METRO ATLANTA Year: 2014

37 mph

40+ mph

0 mph

70 mph

Evening Peak-Hour Speeds on General Lanes
AREA: METRO ATLANTA Year: 2014

38 mph

40+ mph

0 mph

70 mph

Morning Peak-Hour Speeds on Managed Lanes
AREA: METRO ATLANTA Year: 2014

44 mph

45+ mph

0 mph

70 mph

Evening Peak-Hour Speeds on Managed Lanes
AREA: METRO ATLANTA Year: 2014

36 mph

45+ mph

0 mph

70 mph