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Ohio

The Rural Context For Transportation Consultations

Ohio is the 35th largest state in the U.S. in land area, 7th largest in population, and 8th most densely populated. However, approximately 39 percent of Ohio's population and jobs, and 91 percent of the land, is non-urban. About 79 percent of Ohio's roads are rural. Federally owned lands amount to less than one and a half percent of the state's land area.

Ohio is a slowly growing state, as measured by population, with a moderately growing rate of employment. The portion of the state's jobs in the uniquely rural agriculture and mining sectors is small (4 and less than one percent, respectively). Most jobs in Ohio's rural areas are in sectors also common in urban areas: construction, transportation & utilities (12 percent); manufacturing (28 percent); business & trade (25 percent); and services & government (31 percent).

Demographically, Ohio's non-urban population is predominately white (97 percent). Compared to the other states, the proportion of Ohio's non-urban adult population who did not graduate from high school is near the middle, and the proportion who did graduate from college in is the middle. The 11 percent of Ohio's non-urban people who are poor is also about in the middle compared to other states. About 41 percent of the state's non-urban population is in non-working age groups (29 percent 18 years or younger, and 13 percent 65 years or older).

Governmentally, Ohio is complex. Although its has 88 counties, a fairly manageable number compared to many other states, Ohio also has 941 municipalities and 1,310 towns or townships, for a total of 2,251 sub-county divisions. This is the 4th highest number of sub-county governments among the states. Ohio does not have any federally recognized Indian tribes.

In addition, the 1997 U.S. Census of Governments has identified 81 independent, special-purpose governments in Ohio that have transportation responsibilities. This number is higher than in many other states. These special-purpose governments include 53 for airports, 13 for water transport, and 15 for transit. Ohio also has 33 other public transit providers serving rural areas and an additional 311 organizations that provide specialized transit services to elderly and disabled populations in those same areas.

Ohio has 16 regional councils that cover approximately 80 percent of the state, and 13 MPOs. These regional units help to coordinate the large number of other local governments and play a direct role in rural transportation programs as described below.

Of Ohio's 114,801 miles of Federal Aid Highways, approximately 14 percent are state-controlled, while less than one percent are federal. Of the total miles of non-federal rural roads, 19 percent are state, 32 percent are county, 42 percent are township, and 7 percent are municipal and other.

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

The Ohio Department of Transportation (ODOT) has a decentralized planning process that relies heavily on ODOT's 12 district offices to coordinate with local officials and the public in their areas. Ohio has 88 counties, 16 MPOs, 2 rural multi-county regional planning commissions (RPCs), and 4 rural regional planning agencies (designated as Economic Development Districts). These organizations have broad planning responsibilities and focus on transportation to different degrees. ODOT develops a six-year major new construction program; the first four years of that program are included in the STIP. There is also a 20-year long-range transportation plan.

ODOT's consultative process is multi-modal and includes federal land management agencies during the planning stage of any project being considered that might impact federal lands. Currently, discussions of issues such as economic development and land use are limited. However, ODOT has recently taken steps to better educate district staff about the inter-relationship of these issues and their significance for transportation planning.

ODOT central office and districts develop plans and conduct the planning process on an ongoing basis. While rural officials are consulted regularly about their needs and problems, they most typically are involved with project-specific issues. Districts use a variety of formal and informal ongoing consultation processes, differing according to what works best in each area. For example, most districts hold "government days" (town meetings) with local jurisdictions; there is no set agenda and local officials can address any unique issues they choose. There are district and central office web sites and newspaper columns designed to answer questions from officials and the public. Also, district officials report a great deal of informal involvement with local officials, in most cases almost daily contact. District staff may also attend and participate in regular board meetings of local governments and rural regional planning organizations. Although the focus of these groups is typically economic development, they also provide a forum for district staff to work with local officials on transportation issues and projects. (Elected officials in rural areas included in MPO boundaries are also invited to participate in their MPO's planning process.)

In 1995, the Transportation Review Advisory Council (TRAC) was created to provide an objective project selection process. The TRAC program is, essentially, a grant program in which local governments and MPOs from throughout the state annually compete for approximately $300 million for capacity adding projects. The TRAC has nine appointed members and is charged with prioritizing new capacity adding projects over $5 million. As part of the TRAC annual process, all local governments are given the opportunity to apply for or submit projects for funding from TRAC funds or other ODOT funds. Major new projects are proposed to TRAC by ODOT, MPOs, county and municipality officials, transit and port authorities, and county engineers. Rural local governments submit requests to TRAC through ODOT districts. TRAC conducts up to six hearings annually before prioritizing these projects

In developing the statewide plan, "Access Ohio," rural officials were included in a statewide public involvement effort in which close to 100 public meetings were conducted. Many local officials were also involved in a series of focus groups. Local officials' ideas and opinions were included in the recommendations in this plan.

The "Statewide Transportation Improvement Program Public Involvement Procedures" (adopted March 1994) specify procedures for obtaining public input into the STIP. Essentially, public notice is given that the draft STIP, prepared by ODOT, is available for comment. Comments can be provided in writing or electronically. In addition each district office holds at least one public meeting during the comment period. Local elected officials may participate in any of these activities. All comments are evaluated and the final STIP is developed. If there are significant changes, another comment period is held. The final STIP is then forwarded to FHWA/FTA.

Beyond this formal process, information for drafting the STIP is obtained through all of the many ongoing consultative processes, and most districts are in regular contact with local elected officials on current or potential projects. Additionally, many of the counties and regional planning organizations have developed their own long-range plans, often including transportation elements. ODOT decision-makers use the recommendations in these local plans for guidance as to which projects to select and fund.

Of the 22 cents per gallon state motor fuel tax, 2 cents goes to counties and 1.1 cents goes to townships for highways under their jurisdiction. Also, one cent goes to the Transportation Improvement Fund for local governments. In 1998, an estimated $304 million went directly to these local governments; how these funds are used is decided by local governments. Counties and municipalities also may levy local vehicle registration fees to raise additional funds to meet transportation needs. Each ODOT district is allocated funds to be spent on maintenance of the rural state highway system. An estimated $530 million was spent on rural projects in 1998. In addition, there are a variety of federally supported programs, including the County Local Bridge Program, the County STP Program, and the Highway Safety Program for which rural areas are eligible. For some of these programs, funds go through (or selection criteria are developed by) the County Engineers Association of Ohio. For transit projects, the state funds rural transit agencies with General Revenue Funds, primarily a state match to federally provided funds.

Ohio uses these practices:

State Processes to Compile Transportation Needs: Sponsors may propose projects to TRAC to meet transportation capacity addition needs.
State Hearings: TRAC holds up to 6 public hearings; district offices hold public meetings that could also provide comments on the draft STIP.
Processes for Interactive Exchange of Views with Local Officials: Some districts conduct town meetings; local officials were involved in focus groups during development of the statewide plan.
Roles of RPOs: Regional planning commissions and regional planning agencies focus on transportation to different degrees.
Allocation of Funds and Responsibilities: Local governments control use of some funds.
Other Practices: These differ by district, but might include: district staff attend local government and regional planning agency meetings; district offices have an open door policy and there is frequent informal communication; there are central office and district office interactive web sites as well a newspaper columns which answer questions from the public.

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