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Montana

The Rural Context For Transportation Consultations

Montana is the 4th largest state in the U.S. in land area, 7th smallest in population, and 3rd least densely populated. Approximately 75 percent of Montana's population and jobs, and just under 100 percent of the land, is non-urban. About 98 percent of Montana's roads are rural. Federally owned lands amount to 28 percent of the state's land area.

Montana is a slowly to moderately growing state, as measured by population, with a slowly growing rate of employment. The portion of the state's jobs in the uniquely rural agriculture sector is moderate (12 percent) and in the mining sector is small (2 percent). Most jobs in Montana's rural areas are in sectors also common in urban areas: construction, transportation & utilities (13 percent); business & trade (26 percent); and services & government (39 percent), although the manufacturing sector is smaller (8 percent).

Demographically, Montana's non-urban population is predominately white (92 percent) with a significant portion of Native Americans (7 percent). The proportion of non-urban adults who did not graduate from high school is in the bottom quarter (10th lowest), compared to the other states, and the proportion who did graduate from college is in the bottom half (19th lowest). The percent of non-urban poor people in Montana (16) is greater than most other states. About 44 percent of the state's non-urban population is in non-working age groups (30 percent 18 years or younger, and 14 percent 65 years or older).

Governmentally, Montana has 56 counties, a fairly manageable number compared to many other states. The state also has 129 municipalities but no towns or townships. This is the 9th lowest number of sub-county governments among the states. Montana also has 8 federally recognized Indian tribes.

In addition, the 1997 U.S. Census of Governments has identified 12 independent, special-purpose governments in Montana that have transportation responsibilities. This number is lower than in many other states. These special-purpose governments include 8 for airports and 4 for transit. Montana also has 11 other public transit providers serving rural areas and an additional 65 organizations that provide specialized transit services to elderly and disabled populations in those same areas.

Montana has 3 MPOs.

Of Montana's 69,613 centerline miles of public roads, approximately 16 percent (10,807 miles) are state-controlled, while 20 percent are federal. Of the total miles of non-federal rural roads, 14 percent are state, 83 percent are county, none are township, and 3 percent are municipal and other.

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

The Montana Department of Transportation (MDT) conducts planning and Secondary Highway Program development through its five districts, in consultation with local officials. The basic elements of the process for non-metropolitan areas have been in place in Montana statutes for over 30 years. Historically, resources were allocated by county. Recently this practice was changed to allocate funds to the district level to better accommodate larger projects. MDT has a staff that works with local governments to handle federal programs. The Montana Transportation Commission has five members--one from each of the districts.

The long-range statewide transportation plan sets policy goals and direction. The consultation process for this plan involves local elected officials in many ways. The methods used include: targeted mailings of the plan (including local governments and Tribal governments); open houses; stakeholder focus groups; meetings with Tribal governments; use of an 800 number for comment and information; a newsletter (with a distribution to over 5,000 individuals); a telephone survey of state residents, and mail distribution of the draft and final plan for comment. In addition, on-going consultation efforts include: mail surveys of stakeholder groups; telephone surveys of residents; newsletter updates and the 800 number; a web site; annual meetings with elected officials and Tribal governments; and continual meetings with representatives of local government associations.

In March 1999, a state law changed the funding distribution for Secondary Highways, allocating funds at the district instead of the county level. This change was supported by the Montana Association of Counties. A new project selection process, the secondary program planning process, was also developed between the counties and the state, and has been customized to meet the needs of the counties in each district. Among other things, under the agreed on process:

Together, the counties within a district and the state determine the emphasis areas for each district. In prioritizing projects, each county in a district has one vote and the state has two votes.
Proposed projects are ranked at the district level based on how each district has defined its goals.
The district secondary highway priorities are then approved by the Transportation Commission and the U.S. DOT, and moved into the STIP.
In addition, as of January 1, 2001, the state will complete taking over maintenance responsibility from the counties on all paved Secondary Highways.

As with the long-range plan, there are many avenues for public involvement concerning the STIP, most of which can include local elected officials. Those include: regionalized press releases explaining STIP content and how to comment; an annual issue of the newsletter dedicated to the STIP; mailing of the draft and final plan to all who request it; posting of the STIP on MDT's web page; annual meetings with elected local officials, federal agencies and Tribal governments; cyclical meetings around the state in small rural communities with the Transportation Commission and Montana Association of Counties. The state's three MPOs include representatives of rural developing areas within the MPO boundaries. County commissioners are members of the decision making body within the MPOs.

Additionally, under the state's new Performance Programming Process, projects can be proposed by anyone for any part of the system. They are ranked based on the extent to which they contribute to statewide and district performance goals, and put into the STIP. The consultative process for the STIP is on-going, as described for the long-range plan.

Transit planning is coordinated with the Montana Department of Health and Human Services. MDT assists transit agencies in developing plans, including obtaining public comment and funding.

Rural transportation is funded by federal, local and state programs. A portion of STP funding is sub-allocated at the district level for Secondary Highway Improvements based 30 percent on land area, 35 percent on rural population, 30 percent on rural road mileage and 5 percent on bridge square footage. Federal funds are matched with state, not local, funds. Thirty-five percent of federal bridge funds are allocated to off-system bridges, which are under local control. This is the maximum allowable under Federal law. All TEA-21 Transportation Enhancement funds are distributed on a per-capita basis to local and Tribal governments that prioritize, select and develop projects. Also, a portion of STP funds is sub-allocated to Montana's non-MPO urban areas for improving the state's designated urban routes. Local elected officials prioritize use of these funds which are distributed on a per-capita basis. The Transportation Commission approves all locally proposed projects. State fuel taxes are returned directly to counties and municipalities based on a statutory allocation. Transit programs are supported by federal funds, including a portion of the STP program that is allocated for transit. Local governments can also implement various fund raising mechanisms for transportation purposes. After both ISTEA and TEA-21 were enacted, the Montana Transportation Commission increased the state's Secondary and Urban allocations proportionally to the state's overall funding increase.

The state's public surveys show that overall satisfaction with the transportation system has increased, and perceived system problems are decreasing.

Montana uses these practices:

State Process to Compile Needs: Under the agreed on process, the Counties within each district develop a list of prioritized Secondary Highway needs. Statewide needs are identified through management system input into the Performance Programming Process.
State Processes for Interactive Exchanges of Views with Local Officials: MDT holds open houses and conducts many meetings and focus groups with stakeholders.
Allocation of Transportation Funds and Responsibilities: STP funds are sub-allocated by state statutory formula to the counties within each district, and the small urban areas. State fuel taxes are also distributed to the local (county and city) governments based on formula, and the entire Transportation Enhancement set-aside is distributed to local and Tribal governments. Within these programs, the local governments essentially have the authority to establish funding priorities.
State Policy-Making and Advisory Bodies: State Transportation Commission.
Other Practices: A variety of other methods are used, including an 800 number, a web site, newsletters, telephone and mail surveys of stakeholders and the general public.

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