The following frequently asked questions (FAQ's) were created to help clarify the role of local growth management plans and related regulations in developing transportation plans and providing environmental analysis of those plans. The FAQ's were created by the Washington State Department of Transportation (WSDOT) and the Department of Community, Trade and Economic Development (CTED).
Federal Transportation Planning Process
What is the requirement for transportation plans at the federal level?
The transportation planning process is a detailed, Congressionally mandated procedure for developing long-range transportation plans and shorter-range transportation improvement programs (TIPs). These procedures were initially enacted in the 1960s and have received subsequent updates. The procedures in the U.S. Code identify the state and local agencies with primary responsibility for transportation and specifically identify the planning factors that should be considered, including the protection and enhancement of the environment.
There is no requirement at the federal level for environmental assessment of transportation plans.
Washington State Transportation Planning Process
What are the major types of transportation plans required in Washington State?
Local:
The Transportation Element of local (city and county) comprehensive plans are referred to in this document as “Growth Management Plans” or “GMA Plan” [RCW 36.70A.070 (6)]. This element of the GMA Plan provides information about the current transportation system (including transit) in terms of service levels and needs and provides a plan to accommodate anticipated growth over the 20-year planning period.
County-wide Planning Policies are required to include policies for county-wide transportation facilities and strategies. The development and updating of these policies require a collaborative effort between the county and its cities and towns as well as public review.
Regional / Metropolitan:
Metropolitan transportation plans developed by the Metropolitan Planning Organizations (MPOs) and regional transportation plans developed by Regional Transportation Planning Organizations (RTPOs) include local and state projects of regional significance. Metropolitan and Regional Transportation Plans generally include substantial involvement by local governments.
State:
Route Development Plans (RDPs) are planning studies conducted for state highway corridors. Other types of plans include; corridor management plans, design analysis, environmental assessments, environmental impact studies and feasibility studies.
The Highway System Plan (HSP) is the highway element of the Washington Transportation Plan and focuses on 20-year needs for the state-owned highway system. WSDOT works with MPOs and RTPOs to identify deficiencies of the system.
The Washington Transportation Plan (WTP) is a requirement of State law and the Federal Transportation Equity Act for the 21st Century (TEA-21). It is based on Washington State Transportation Policy established by the Washington State Transportation Commission. The WTP prioritizes WSDOT's funding focus and provides for development, management and operation of systems and facilities including all modes of transportation. The WTP identifies needed statewide transportation policies, programs, and in some cases, state transportation improvement projects.
Additional modal plans are required elements of the WTP such as: the state ferry system plan, public transportation plan, freight rail plan, passenger rail plan, bicycle and pedestrian plans, aviation plans, marine ports and navigation plans.
Tribal:
The Growth Management Act does not apply to tribal governments. However, some tribes work cooperatively with neighboring jurisdictions on land use planning and may or may not agree to follow the requirements of GMA.
Tribes create and adhere to their own land use and transportation plans.
The Tribal Transportation Planning Organization (TTPO) is an association of many Tribal, state, federal, transportation, policy, planning and administrative professionals. The TTPO has the following functions and purposes:
- To promote tribal transportation planning in Washington State and to foster intergovernmental cooperation and coordination;
- To provide a forum for the advancement of professional skills and knowledge among transportation professionals employed with Tribal Governments;
- To encourage effective use of planning principles, cooperation and education among transportation agencies at the local, state and federal level.
The TTPO focuses on intergovernmental cooperation in transportation planning.
How are transportation projects prioritized in Washington State?
Local transportation projects are prioritized by elected officials after city and county staff identify deficient facilities. Some projects that have been identified at the local level (six-year transportation improvement program) as being regionally significant, as well as some projects identified by WSDOT will be included in the Metropolitan and Regional Transportation Improvement Programs (TIP) by MPOs and RTPOs. MPO Transportation Improvement Programs are approved by the Governor. The regional TIPs make up the Statewide Transportation Improvement Program (STIP), approved by the Federal Highway Administration and the Federal Transit Administration for federally funded projects. The STIP includes a list of projects matched with funding sources and provides a good indication of what is planned over a 3-year period.
In addition to locally generated projects, WSDOT identifies and prioritizes projects of statewide significance. Occasionally the legislature will direct WSDOT to prioritize a local or regional project that has not been previously prioritized. The allocation of funds at the local, state and federal levels for transportation facilities directly impacts the number of projects that can be funded at all levels. Unfunded projects may not be prioritized as high as funded projects.
Washington State Growth Management Act (GMA)
Why is the State Growth Management Act (GMA) important to transportation planning?
The majority of local governments in Washington have developed their own transportation and land use plans under the GMA. These plans include a wealth of information that can be used to develop WSDOT transportation projects.
The basic principles of the GMA are outlined in fourteen basic goals, which discourage sprawl and encourage efficient multimodal transportation systems. Many of the planning goals directly relate to specific planning requirements in the Act. One of the provisions of the GMA requires local governments to disclose the impact land use changes will have on state highways. This information assists WSDOT in planning improvements to state highways and other state owned facilities. A project team can look to local land use plans to enhance the content of project plans.
What are concurrency requirements for transportation projects?
The GMA requires that transportation improvements to accommodate development impacts need to be made concurrently with land development. “Concurrency” means that any needed improvements are in place at the time of development or that a financial commitment exists to complete the improvements within six years.
Local governments have adopted a variety of concurrency management systems to fit their circumstances such as; committing to roadway improvements; carrying out demand management programs, or; revising proposed projects. If concurrency cannot be demonstrated, then local jurisdictions are required to enforce adopted ordinances, which prohibit development approval.
Only Highways of Statewide Significance are exempt from GMA concurrency requirements. Highways of Statewide Significance include: the interstate highway system and interregional state principal arterials including ferry connections that serve statewide travel.
For more information on concurrency see "Coordinating Transportation and Growth Management Planning"(pdf 1mb). Also review concurrency on our Planning Office's site.
How is a Growth Management Plan different from other plans?
Growth Management Plans are mandatory documents for those jurisdictions required to fully plan under the Growth Management Act. GMA plans must include policies to protect critical areas, allow for low-income housing options and develop a financial plan to deal with transportation and capital facility needs that links to the budget process, in addition to other requirements. Plans should be reviewed by state agencies before they are adopted by the local jurisdiction. The plans include goals and policies directing urban growth within the corporate limits (for cities) and where appropriate (for counties). The city and the county jointly plan for growth in the city's designated urban growth area and the county plans for rural areas.
Without an adopted growth management plan and development regulations that comply with the GMA, the jurisdiction may not be eligible to receive some state grants and loans. In addition, other sanctions can be imposed by the Governor if a jurisdiction fails to comply with the GMA (RCW 36.70A.330).
Relevance of the Growth Management Act to Transportation Plans
How are local GMA plans relevant to Transportation Corridor Plans or Route Development Plans?
Planners working on transportation corridor plans and route development plans should capture local GMA plan information and become involved in the jurisdiction's public involvement process as early as possible in the planning process. Conversely, local GMA plans should incorporate appropriate information from WSDOT planning documents into GMA plans to ensure consistency.
There are a number of similarities between corridor and route development plans and GMA plans that can be very useful to transportation planners. Existing conditions and trends in transportation and land use are discussed, future population growth is estimated, projected Level of Service (LOS) standards are made as well as policy assumptions. Growth Management plans also include an inventory of land with development potential and a section on transportation with an analysis of transportation systems and the need for concurrency. Some GMA plans include employment growth projections. By viewing the information contained in local GMA plans early in the transportation planning process, information pertinent to corridor or route development plans can be accessed, preventing duplication of effort and potential conflicts between project goals and local policies.
It is also important for the project team to include the regional WSDOT office in discussions about local or regional transportation issues in order to assess what information is currently available.
In addition to the content of the plans, each jurisdiction encourages public participation throughout the development of the GMA plan. Jurisdictions and WSDOT invest considerable time and resources involving the public through community meetings, newsletters, forums and other communication methods. Early planning between the state and regional WSDOT office and between WSDOT and the jurisdiction will help produce better public input, better understanding of the project effects on the surrounding community and less controversy.
Why should WSDOT planners be aware of GMA related requirements?
WSDOT planners must comply with local ordinances. When local GMA plans are implemented through local ordinances, they may impact WSDOT projects. When changes are being made to local ordinances, WSDOT planners and engineers need to be aware of those changes to determine potential impacts on current or planned transportation projects.
Local ordinances can include: critical areas ordinances (CAO), zoning and subdivision ordinances, road design standards, clearing and grading ordinances, noise ordinances and so on.
Critical Area Ordinances (CAOs) control development in critical areas (aquifer recharge areas, flood zones, wetlands, geologically hazardous areas, fish and wildlife habitat conservation areas) and are important in establishing appropriate land uses as well as in locating the necessary infrastructure – including transportation – to support the land uses. CAOs need to include the best available science in making policy determinations. This ordinance and its supporting documentation can assist transportation planners in determining environmental impacts of planned development and in understanding what standards and policies are in-place to mitigate those impacts.
Zoning and subdivision ordinances include design standards for roads, buildings, signs and so on. These ordinances describe the permits needed for development activities, as well as the process of obtaining them. They establish specific design requirements that may have an impact on development, including transportation facilities.
Clearing and grading ordinances provide local control of transportation projects during the pre- and post construction phases and should be adhered to by WSDOT in the planning and development phases of a project.
A noise ordinance may limit the hours of use for specific equipment or where the project may be located.
To ensure that your project complies with the requirements of the local jurisdiction, request a planning conference to describe the transportation project and ask for a copy of the local regulations that might apply to your project. This might also be a good time to discuss the local jurisdiction's public participation process.
What are the benefits of supporting local Growth Management Plans when planning for WSDOT transportation facilities?
Well planned and coordinated transportation improvement projects support growth management. On the other hand, poorly planned projects can induce sprawl by providing access to land not intended or ready for development. Well coordinated planning with local and regional partners increases the effectiveness of local plans, and the process of developing them and assists WSDOT in project selection and funding.
Are transportation facilities sometimes proposed outside of the usual planning process?
Occasionally a proposed transportation project is brought before the Legislature by outside groups. In these cases, neither WSDOT nor local jurisdictions may have a chance to review and comment on the proposed project. It is possible that these types of proposed projects could be inconsistent with both local GMA plans and the Washington Transportation Plan (WTP).
Since Plan consistency is a requirement of the GMA, actions that are inconsistent with GMA plans could be challenged by local governments or citizen groups.
Required Environmental Review for Transportation Projects
How does the National Environmental Policy Act (NEPA) affect local plans and projects?
Transportation projects listed in route development plans and corridor management plans that use Federal funds must meet the requirements of NEPA. Typically, the NEPA assessment is conducted after the planning process has been completed and the transportation project is in the design phase. If the NEPA assessment uses data gathered during the planning process, it will help eliminate duplication and produce more seamless project planning.
What is included in a NEPA assessment?
A NEPA assessment consists of an evaluation of the environmental effects of a federally funded project. It identifies the project location and type, regulations, potential areas of environmental concern and permits needed. There are three levels of analysis depending on whether or not a project could significantly affect the environment. These three levels include: categorical exclusion (CE); environmental assessment (EA); and environmental impact statement (EIS).
A categorical exclusion is usually done when it is determined that the project would not have environmental impacts of significance. Projects must meet a set of criteria to qualify as a categorical exclusion. An EA generally is done when a project is not covered by a categorical exclusion and the environmental effects are not fully understood.
An EIS is conducted if the proposed project has the potential to “significantly affect the quality of the human environment.”
How does the State Environmental Policy Act affect local plans and projects?
The State Environmental Policy Act (SEPA) requires that state agency and local government plans and projects that might have an impact on the natural or built environment be assessed for environmental impacts. The process of assessing impacts is very similar to the NEPA process. In growth management planning, SEPA review is triggered: (1) when a county or city proposes adoption of county-wide planning policies, comprehensive plans, subarea plans, or development regulations; and (2) when local governments process permit applications for projects that meet thresholds defined in SEPA.
When developing or revising a GMA Plan, the scoping agency (e.g. a county for a city) will determine if the plans for land use and transportation changes will significantly impact the environment. The initial assessment is conducted by the local government in the form of an environmental checklist that should be filled out concurrently with a GMA plan or development regulation. The SEPA checklist usually accompanies the Draft GMA plan that is distributed to state agencies and made available to the public for review at least 60 days prior to final plan adoption. The level of impact determined through the review process should determine if an EA or an EIS is needed. If an EIS is needed, that document must be completed and reviewed before the GMA plan is revised and adopted.
SEPA checklists, environmental assessments and environmental impact statements can be very helpful to WSDOT transportation planners in developing their NEPA assessment since many of the same questions are asked in both processes.
How are local growth management plans relevant to project-level environmental assessment?
WSDOT, like all other state agencies needs to comply with local comprehensive plans and development regulations (RCW 36.70A.103). The required elements of the comprehensive plan and the land use maps, are essential for making decisions on transportation facilities and assessing potential impacts. Many jurisdictions have developed a separate environmental element or they may use the land use element to provide discussion of environmental issues. In many cases, this involves a detailed description of current land uses, natural resources and environmentally sensitive lands such as wetlands, flood prone areas and steep slopes. Many plans also include a discussion of issues associated with land use and development. These issues might be helpful in identifying indirect impacts and cumulative impacts. The presence of historic, cultural and archaeological resources may also be found in a local comprehensive plan within the Land Use Element or within the Historic Preservation Element.
Do local growth management plans discuss cumulative impacts?
Yes and no. There is no GMA requirement to discuss cumulative impacts. However, the local jurisdiction must plan for the next twenty years by estimating population growth and how the jurisdiction will accommodate that growth in terms of land uses, housing, infrastructure needs, school capacities, etc.
GMA planning jurisdictions are required to establish a boundary around or outside of their current city limits within which development is planned to occur at densities designed for urban growth, and where urban services can be logically extended. Local jurisdictions often make their UGA determination after considerable public input, after examining sensitive areas in and around the subject properties and exploring impacts on existing development, the school system, transportation systems and infrastructure capacity. This information may be found in the UGA plan or in Planning Commission and/or city or county Council workshop minutes.
If you don't find it in the plan, talk to the Planning Commission Chairperson or someone on staff in the local government who helped develop the GMA plan to find out where the discussion of cumulative impacts might be found.
For more information on cumulative impacts see the WSDOT cummulative effects guidance.
How does watershed planning fit with local comprehensive plans?
While the Watershed Planning Act of 1998 didn't specify how watershed management plans should be integrated with other planning efforts, there are many opportunities for the information and agreements resulting from watershed planning to help comprehensive planning efforts under the Growth Management Act (GMA). For more information see the About Growth newsletters.
Relevance of GMA plans to project permitting
In addition to local permits, State and Federal agencies require permits, certifications, and approvals for a variety of actions dealing with environment.
Comprehensive permitting help is available at the Washington State Office of Regulatory Assistance (ORA) website: Through ORA's website you can find permit assistance via one-stop-permit centers, access online permitting tools, contact permitting agencies, download Ecology's Environmental Permit Handbook and much more.
To ensure you obtain the necessary permits in time to meet your project schedule, contact the local jurisdiction and the Department of Ecology as early as possible in the development process.
WSDOT and others invest in Environmental Permit Streamlining
Running from 2001-2206, the Transportation Permit Efficiency and Accountability Committee (TPEAC), sponsored by the Washington State Legislature, considered ways to test several major process innovations and improve compliance. This site presents a brief history of the committee, its many products, lessons learned and a practitioner's corner.
What tools are available today to better align transportation planning and environmental permitting?
This question was carefully studied under TPEAC. Next steps for integrating planning and permitting will continue to refine and advance efforts from the TPEAC experience.
Relevance of Tribal plans to project permitting
How are tribal plans relevant to project permitting?
Although the Growth Management Act does not apply to tribes, some tribes voluntarily comply with GMA. Many of Washington's Native American tribes own and manage reservation lands and have their own planning and permitting processes. Some of the plans that might be available include: land use plans, natural resource plans, hazard mitigation plans, economic development plans and social services plans.
Some tribes have zoning and subdivision ordinances. Many tribes use a tribal SEPA review process to protect their natural resources from unplanned development. To find out what types of plans and permits are available, each tribe can be contacted individually or through a consortium of tribal governments such as SPIPA (South Puget InterTribal Planning Agency). The Governor's Office maintains a list of Washington State Tribes. The Federal Bureau of Indian Affairs may also have permit requirements.
When planning for a transportation facility that is located on tribal lands, you must work with the tribal government to find out what permits may be required and what kind of review process is necessary.
Review the Planning office site for more information on tribal transportation planning.