1. Introduction

A DYNAMIC PLANNING ENVIRONMENT

There are several critical issues that have impacted the development of this LRTP. These include funding, transportation choices, environmental issues, and economic concerns as discussed below:

• Federal transportation authorization. The current federal surface transportation law, the Bipartisan Infrastructure Law (BIL), which authorizes funding for Federal Highway Administration (FHWA) and Federal Transit Administration (FTA) programs, expires in 2026. It is expected that new federal legislation, or an extension of the current law, will be passed by 2026. However, the priorities of this prospective future legislation are not yet known.
• Federal transportation funding. Programs of the FHWA and the FTA provide a significant proportion of capital funds in New York State’s transportation program. All FHWA program funds, and a portion of FTA funds, come from the Highway Trust Fund (HTF). The primary source of revenue for the HTF is tax on gasoline and diesel fuel. These taxes have not been increased since 1993, leaving their purchasing power diminished by nearly three decades of construction cost inflation. At the same time, receipts have been diminished by use of more fuel-efficient cars, and alternative fuels that are not taxed. Since 2016, Congress has transferred billions of dollars from the U.S. General Fund to the HTF so it can meet expenditure obligations despite the decreasing purchasing power of the federal gas/diesel taxes. There is general agreement among policy makers that a sustainable approach to funding FHWA and FTA must be enacted, however how this will happen is unclear.
• State and local transportation funding. The New York State Dedicated Highway and Bridge Fund also has fiscal challenges, related to substantial debt service payments resulting from past borrowing, and use for non-capital purposes. Local governments receive state funds through the Consolidated Local Street and Highway Improvement Program (CHIPS) but must rely primarily on property tax and sales tax receipts to pay for transportation projects that are not on the federal-aid road system. Other states permit local option sales taxes, but this is not the case in New York. Public transit is supported separately by the state, with operators such as Ulster County Area Transit (UCAT) receiving State Transit Operating Assistance (STOA), and a portion of the non-Federal share of capital costs. State and federal funds are formula-driven with federal aid shrinking slightly.  Public demand for more frequent transit service and wider coverage is being addressed by county leaders, which must ultimately be paid using local dollars.
• Aging infrastructure. The New York State Department of Transportation (NYSDOT) points out in its 2022 Transportation Asset Management Plan that, like much of the rest of the country, our state’s roads and bridges, transit systems, and railroads are characterized by aging infrastructure. Depending on the type of construction and materials used, each of these elements has a predictable life span. That life may be extended by preventive maintenance and rehabilitation or decreased by neglect. Current conditions are a consequence of investment, but also of timing. From the late 1950s to the early 1970s, the nation built much of the Interstate Highway System and other facilities. Fifty years later, much of this infrastructure is worn out, creating a spike in need for investment in preservation in order to keep the assets operational.
• Focus on freight and economic development. The trend in federal transportation policy over recent years is to pay more attention to freight movement and how it supports regional, statewide, and the national economy. NYSDOT completed its first comprehensive statewide Freight Transportation Plan in 2019 and published an update in 2024. Federal legislation requires that the United States Department of Transportation (USDOT) develop a National Freight Strategic Plan and Primary Freight Network. The UCTC will take advantage of these activities to continually evaluate the role of freight movement in the county’s economy.
• Changing attitudes about land use. People of all ages make decisions about where they choose to live, and how to pursue a positive quality of life. Whether urban or suburban, people increasingly seek a human scaled neighborhood that is walkable and bikeable, has access to schools and shopping, and has convenient public transit. Others prefer a rural location, but one with access to needed services. New York State passed both a Smart Growth Public Infrastructure Policy Act and a Complete Streets Act. These acts were intended to guide state and local government decisions about transportation projects away from a singular auto-centric view to one that looks at the accessibility and mobility needs of all users.
• Transportation and Harmful Air Pollution. Air pollution from operating motor vehicles is a major challenge for metropolitan regions across the country. Ulster County is in attainment of federal air quality standards. However, UCTC continues to monitor the policy landscape relating to air pollution and seeks opportunities to further reduce the transportation system’s contribution to air pollution.
• Public health and active transportation. Transportation planners are bringing new partners into their conversations. The public health community has begun to turn its understanding of the value of physical activity into participation through calls for active transportation initiatives and opportunities. They have become valued stakeholders in supporting the construction of sidewalks and trails, wider shoulders of roads to support safe biking and walking and promoting Safe Routes to School and similar non-motorized programs. This is closely connected to discussions of land use planning as noted above.
• Transportation and technology. A twenty-five-year planning cycle is a very long time in today’s environment of fast changing technology, disruptor business models, environmental challenges, and economic cycles. We have seen that even a five-year capital program cycle has difficulty responding to these changes. During the 25-year horizon of this LRTP, we may see fully automated cars being in general use, electrical vehicles representing a majority of new vehicles, reoriented investment in transportation infrastructure to reflect environmental concerns, remote work capabilities altering commuter patterns, and the use of online resources changing shopping behavior along with the need for freight and delivery services. These changes have already begun. Already, personal vehicles have more on-board safety features like lane departure warning and automatic brake assist, and pervasive wireless communications has enabled new approaches such as USDOT’s Vehicle-to-Everything (V2X) plan to support cars communicating seamlessly with each other and roadside infrastructure, enhancing safety and smoothing traffic flow.  Commercial GPS guidance systems are found in cars and trucks, and on smartphones and similar devices. Drivers receive real-time traffic and road information, enabling them to make smart choices on route, mode, and time of travel. EV charging stations are now deployed on major routes, bridge replacements now require 100yr flood analysis, and Uber and Lyft are present in the region. The resulting changes in travel behavior and infrastructure design will change the need for investments and are likely to change some of the conclusions of this LRTP. The next update of this LRTP, due by 2030, will take stock of expected and any unanticipated technological developments, and evaluate their consequences for UCTC’s strategic vision.

The framework of the LRTP is codified in Titles 23 (FHWA) and 49 (FTA) of the Code of Federal Regulations. The LRTP must address the following ten planning factors:

1. Support the economic vitality of the metropolitan area, especially by enabling global competitiveness, productivity, and efficiency;
2. Increase the safety of the transportation system for motorized and non-motorized users;
3. Increase the security of the transportation system for motorized and non-motorized users;
4. Increase accessibility and mobility of people and freight;
5. Protect and enhance the environment, promote energy conservation, improve the quality of life, and promote consistency between transportation improvements and State and local planned growth and economic development patterns;
6. Enhance the integration and connectivity of the transportation system, across and between modes, for people and freight;
7. Promote efficient system management and operation;
8. Emphasize the preservation of the existing transportation system;
9. Improve the resiliency and reliability of the transportation system and reduce or mitigate stormwater impacts of surface transportation; and
10. Enhance travel and tourism.

23 CFR 450.306

The recognition by the Federal government that every metropolitan area is different gives the UCTC flexibility to establish its own priorities among these planning factors in ways that make the most sense for the region it serves. In doing so, UCTC relies on the shared perspectives of all stakeholders providing a collaborative forum to arrive at decision.

RELATED PLANS

UCTC is also required to integrate into the LRTP the goals, objectives, measures, and targets contained in related transportation plans developed and adopted by state departments of transportation and public transportation providers. These “Related” transportation plans are specifically referenced in the federal regulations and include the following:

• New York State Transportation Master Plan (latest edition is in draft form at the time of writing)
• New York State Highway Safety Improvement Program (HSIP) Annual Report and the New York State Strategic Highway Safety Plan (SHSP);
• New York State Transportation Asset Management Plan for the National Highway System (NHS);
• Transit Asset Management (TAM) and Transit Safety Plans adopted by Ulster County Area Transit;
• New York State Freight Plan;
• NYS Pedestrian Safety Action Plan
• NYS Roadway Departure Safety Action Plan
• Mid-Hudson Valley Transportation Management Association (TMA) Congestion Management Process Technical Reports (CMP).

UCTC has considered and integrated the policies and strategies contained in these plans into this LRTP and is committed to supporting progress toward performance targets adopted by New York State Department of Transportation. A detailed System Performance Report is provided in Appendix D.

TITLE VI OF THE CIVIL RIGHTS ACT

“No person in the United States shall, on the ground of race, color, or national origin be excluded from participation in, be denied the benefits of, or be subjected to discrimination under any program or activity receiving Federal financial assistance.”

Title VI of the Civil Rights Act of 1964

UCTC support for and compliance with Title VI of the Civil Rights Act can be found in the following:

1. evaluation measures built into the Unified Planning Work Program (UPWP) and Transportation Improvement Program (TIP) project selection process;
2. the use of Geographic Information System (GIS) resources to illustrate the relationship between transportation investments programmed and areas with concentrated low-income, minority, age 65 and older, and mobility disability populations;
3. outreach for UPWP projects that recognize the needs of the Limited English Proficiency (LEP) population including Spanish translation of project outreach materials, inclusion of Spanish translators at public outreach events and meetings and holding meetings in locations that serve the LEP population; and
4. focusing UCTC transit planning efforts on the needs of underserved areas and populations.

ABOUT UCTC

The Kingston urbanized area has more than 50,000 people as determined by the U.S. Census Bureau. Federal regulations require that every urban area in the United States of more than 50,000 persons have a designated MPO in order to qualify for Federal highway and transit funding. UCTC in its role as MPO provides the forum for cooperative transportation decision-making for the metropolitan planning area.

The UCTC was designated as the MPO for the Kingston Urbanized Area by the Governor of New York on April 30, 2003, following the results of the 2000 Census. The UCTC planning area also includes portions of the Poughkeepsie-Newburgh Urbanized area where these urbanized areas extend into the southern towns in the County (see Figure 1.1).

The UCTC’s decision-making authority rests with its Policy Committee voting members. The Policy Committee is composed of chief elected officials from urbanized and non-urbanized areas throughout Ulster County along with NYSDOT and the New York State Thruway Authority. UCTC’s adopted Operating Procedures describes how the Policy Committee is organized and how it operates.

The UCTC Policy Committee is supported by an advisory Technical Committee comprising appointed municipal and transportation agency staff representing Ulster County municipalities and transportation agency interests. The Technical Committee monitors the operational aspects of the UCTC planning program for consistency with Federal, State, and local planning requirements, reviews technical and policy-oriented projects and programs, makes recommendations to the Policy Committee for consideration, and monitors the activities of UCTC staff (see Ulster County Transportation Council Operating Procedures as approved May 26, 2015.  Online at  http://www.co.ulster.ny.us/planning/uctc/documents/mpo_op.pdf).

UCTC Policy Committee Membership

Permanent Voting Members

Ulster County Executive, Chair

City of Kingston Mayor

Town of Saugerties Supervisor

Town of Ulster Supervisor

NYS Thruway Authority Executive Director

NYSDOT Commissioner, Secretary

Two-Year Voting Members

(Alternate biennially; 7 at a time)

Village of Saugerties Mayor

Town of Hurley Supervisor

Town of Rosendale Supervisor

Town of Esopus Supervisor

Town of Lloyd Supervisor

Town of Marlborough Supervisor

Town of Plattekill Supervisor

Town of Shawangunk Supervisor

Village of Ellenville Mayor

Village of New Paltz Mayor

Town of New Paltz Supervisor

Town of Wawarsing Supervisor

Town of Woodstock Supervisor

Town of Kingston Supervisor

7 as 1 Rural Voting Membership

(Appointed by Ulster County Association of Town Supervisors)

Town of Denning Supervisor

Town of Gardiner Supervisor

Town of Hardenburgh Supervisor

Town of Marbletown Supervisor

Town of Olive Supervisor

Town of Rochester Supervisor

Town of Shandaken Supervisor

Non-Voting Advisory Members

Federal Highway Administration

Federal Transit Administration

Federal Railroad Administration

NYS Bridge Authority

MID-HUDSON VALLEY TRANSPORTATION MANAGEMENT AREA

As an urbanized area with a population of over 200,000, the Poughkeepsie-Newburgh urbanized area (including portions of south-eastern Ulster County; see Figure 1.1) is classified as a Transportation Management Area (TMA), which means it is subject to additional Federal requirements and scrutiny.  The fusion of the three counties of the Poughkeepsie-Newburgh urbanized area (Dutchess, Orange, and Ulster counties) into a single planning area is known as the Mid-Hudson Valley TMA. The TMA is governed collaboratively by three separate MPOs – the Dutchess County Transportation Council (DCTC), the Orange County Transportation Council (OCTC), and UCTC.

The Mid-Hudson Valley TMA is a forum for a high level of cooperation among the three MPOs and their state partners. Collaboration includes shared work products such as the Congestion Management Process; the allocation of FTA 5307 funds; data and information sharing, such as traffic counts, travel time surveys, geographic information systems products and federal highway classifications; decision making; staffing; professional services; and financial support.

The three MPOs meet regularly concerning TMA requirements, and coordinate on work activities such as planning studies, TIP development, long range transportation plans and other work products that impact the region.  The MPOs individually meet their federal requirements, and in the preparation of each MPO’s primary work products they take into account the TMA’s function and highlight relevant information regarding areas of collaboration.