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Maine

The Rural Context For Transportation Consultations

Maine is the 12th smallest state in the U.S. in land area, 12th smallest in population, and 14th least densely populated. Approximately 80 percent of Maine's population and jobs, and 99 percent of the land is non-urban. About 91 percent of Maine's roads are rural. Federally owned lands amount to less than two percent of the state's land area.

Maine is a slowly growing state, as measured by population, with a moderately growing rate of employment. The portion of the state's jobs that are in the uniquely rural agriculture and mining sectors is small (3 and less than one percent, respectively). Most jobs in Maine's rural areas are in sectors also common in urban areas: construction, transportation & utilities (14 percent); manufacturing (21 percent); business & trade (26 percent); and services & government (36 percent).

Demographically, Maine's non-urban population is predominately white (99 percent). The proportion of Maine's non-urban adult population who did not graduate from high school ranks in the bottom half ( 18th lowest) compared to other states, but the proportion who did graduate from college is also in the bottom half (20th lowest). The 10 percent of Maine's non-urban population who are poor is lower than in most other states. About 40 percent of the state's non-urban population is in non-working age groups (27 percent 18 years or younger, and 13 percent 65 years or older).

Governmentally, Maine has 16 counties, a fairly manageable number compared to many other states. The state also has 22 municipalities and 467 towns or townships, for a total of 489 sub-county divisions. It ranks in the middle (21st highest) in terms of the number of sub-county governments. Maine also has 5 federally recognized Indian tribes.

In addition, the 1997 U.S. Census of Governments has identified 6 independent, special-purpose governments in Maine that have transportation responsibilities. This number is lower than in many other states. These special-purpose governments include 1 for airports, 3 for water transport, and 2 for transit. Mine also has 14 other public transit providers serving rural areas and an additional 10 organizations that provide specialized transit services to elderly and disabled populations in those same areas.

Maine has 9 regional councils that cover approximately 85 percent of the state, and 4 MPOs. These regional units help to coordinate the other local governments and play a direct role in rural transportation programs as described below.

Of Maine's 22,481 miles of roads, approximately 38 percent are state-controlled, while less than one percent are federal. Of the total miles of non-federal rural roads, 38 percent are state, none are county, 59 percent are township, and 3 percent are municipal and other.

Processes For Consultation And Cooperation With Local Officials In Non-Metropolitan Areas

Maine's Sensible Transportation Policy Act (STPA) sets the framework for the Maine Department of Transportation's (MDOT) planning and programming. The STPA resulted from a 1991 citizen initiated referendum that mandated public participation in transportation decisions and requires analysis of alternatives before major highway investments are made. In addition to developing and updating the multi-modal long-range transportation plan, MDOT also prepares a Six-Year Transportation Improvement Plan, a Biennial Transportation Improvement Program (BTIP), and the STIP. There are 4 MPOs in Maine. The balance of the state is divided into seven regions, some of which include MPOs. Each region has a Regional Transportation Advisory Committee (RTAC). There are also regional planning commissions that may be involved in transportation planning, in some cases by helping RTACs meet staffing and planning needs. (MDOT has also been working to develop the Integrated Transportation Decision-making (ITD) process, intended to reduce redundancy, and to integrate the planning, public involvement, environmental assessment, and alternatives analysis requirements of various statutes and regulations.)

RTACs consist of citizen volunteers from across the spectrum of transportation interests. The interests represented include local governments, local planners, environmentalists, land use, business, alternative modes, and the general public. The Maine Commissioner of Transportation appoints RTAC members. About one-third of RTAC positions are reserved for people with local interests. Although local elected officials may serve on RTACs, members representing municipal interests are usually appointed, such as managers, planners, engineers, or public works superintendents. The primary function of the RTACs is to provide input and advice to the MDOT on transportation issues during the planning process. Regional planners within MDOT provide a link between municipalities, MPOs and RTACs.

Local elected officials may also participate in transportation planning through participation in the Maine Municipal Association. The Association is a league of cities and towns. It has a Legislative Policy Council that responds to state policy initiatives and a transportation subcommittee that meets to discuss proposed MDOT funding and program policy. The subcommittee's recommendations are submitted to the full Legislative Policy Council, which votes on an official position and presents the results to MDOT and the legislature.

Two statewide advisory committees (freight transportation and passenger transportation) were created to guide MDOT in terms of these special transportation needs. These committees are staffed by MDOT personnel. Information exchange between these two statewide committees and the seven regional committees occurs via MDOT staff, newsletters, annual advisory committee meetings, and sometimes by virtue of dual membership (a member of the freight transportation advisory committee also being a member of a Regional Transportation advisory committee.)

In developing the long-range plan, MDOT works with the MPOs and RTACs to develop an inventory of existing transportation systems (highways, bridges, walkways, bicycle facilities, rail, transit, air ferries and ports). MDOT identifies the nature and extent of future needs. In conjunction with MPOs and RTACs, MDOT then develops a long-range plan that sets forth policies, goals and strategies. MDOT makes the draft plan available for public review at least 20 working days before public hearings at which comments and concerns about the plan are obtained. The plan is finalized after consideration of those comments and concerns.

As the first step in developing the six-year plan, every municipality is asked to submit candidate transportation improvement projects, indicating the priority of each request and its consistency with their locally adopted comprehensive plans. Included in this solicitation are the Indian Tribal Governors and county commissioners for unorganized townships. RTACs establish regional priorities, based on municipalities' preferences as well as other factors, such as regional economic importance.

Statewide priorities are then established with the assistance and cooperation of the MPOs, regional planning commissions, regional highway corridor committees, and the seven RTACs. In the scoring system MDOT uses to set priorities, the relative scores given to projects by RTACs count 30 percent; MDOT cost-effectiveness ratings count 60 percent; and statewide importance counts 10 percent. The MDOT, with the assistance of the RTACs, presents the plan at a series of public information meetings across the state to solicit public comment and input before it is finalized. The STIP is also made available to the public for review and comment prior to becoming final.

Transportation is funded with federal, state and local funds. Maine allocates project funds to the seven regions based on their ratio of local deficiencies to statewide deficiencies, rather than on a per capita basis. Deficiencies are referred to as the "backlog;" a principal duty of the RTAC is to prioritize their region's backlog.

Maine uses these practices:

State Process to Compile Transportation Needs: During the development of the Six-Year Plan and the STIP, MDOT solicits candidate transportation improvement projects and priorities from municipalities, Indian Tribal Governors, and county commissioners for unorganized townships.
State Hearings: MDOT and the RTACs hold a series of public information meetings across the state to solicit public comment and input prior to finalizing the Six-Year Plan, and the STIP. The draft long-range plan and draft STIP are made available for formal review and comment.
Role of RPOs: Maine has seven RTACs which provide input and advice to the MDOT on transportation issues.
State Policy-Making and Advisory Bodies: Freight and passenger advisory committees.

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