regional rural transportation plan summary report · through 2045 (woods & poole economics,...

REGIONAL RURAL TRANSPORTATION PLAN

Summary ReportFlorida-Alabama Transportation Planning Organization

Bay County Transportation Planning Organization Okaloosa-Walton Transportation Planning Organization

Apalachee Regional Planning CouncilEmerald Coast Regional Council

DRAFTJuly 2020

1


Area ProfileThe main purpose of the area profile is to assess the recent and forecasted strengths and weaknesses in the 10-County Region, and identify potential disparities between the Region’s rural and urban areas. The analysis provides an overview of the key socioeconomic characteristics such as trends in regional population, educational attainment, commuting patterns, unemployment, and income.

From 1990 to 2019, Florida’s statewide average annual total population growth rate was 1.8%, while most of the counties within the Emerald Coast grew at lower rates. The ten counties growth pace averaged 1.3% annually between 1990 and 2019 reaching almost 1.1 million last year. Walton and Santa Rosa Counties are an exception, both experiencing substantially higher growth rates than Florida, averaging at 3.4% and 2.8%, respectively. Looking ahead, the regional population is projected (by BEBR, 2020) to continue to increase, averaging 0.8% through 2045 with the total level of 1.3 million, which will likely increase the demand on the regional transportation facilities. The current population density is most concentrated along the Gulf Coast metropolitan areas like Fort Walton Beach, Destin, Panama City, Panama City Beach, and Pensacola. There are also large concentrations along major transportation corridors such as US 98, and US 90 , with much sparser densities in the rural/northern sections of the Region. The regional population density recently averaged at 123 people per square mile, well below the statewide average (401 people per square mile).

IntroductionTransportation facilities link rural and metropolitan areas, and support economic development, sustainability, and quality of life for residents, visitors, and businesses. The Regional Rural Transportation Plan (the Plan) examines these links and identifies key transportation corridors that support the vitality of the region as a whole. The recommendations from this plan mitigate the challenges and identify opportunities for how to best address future investments in the system to continue to provide a sustainable and equitable transportation system.

This Plan examines the 10-County area within and bordering the Emerald Coast Regional Council’s (ECRC) existing planning area, and consists of the following Florida counties: Escambia, Santa Rosa, Okaloosa, Walton, Holmes, Washington, Bay, Jackson, Calhoun, and Gulf. Baldwin County, Alabama is not included in the study area, as rural planning for Baldwin County is completed by the South Alabama Regional Planning Commission.

For the purposes of this plan, rural areas will be defined as those areas outside of the existing Metropolitan Planning Areas for the Florida-Alabama, Okaloosa-Walton, and Bay County Transportation Planning Organizations within the ECRC region. Metropolitan Planning Areas are defined as the lands within the Florida-Alabama, Okaloosa-Walton and Bay County Transportation Planning Organizations. This Regional Rural Transportation Plan establishes a Needs Plan map to identify corridors and projects with a focus on transportation patterns between the rural areas and the Metropolitan Planning Areas for the three TPOs.

Regional household trends parallel the population in terms of growth and density levels. Projections show regional households growing at a 0.8% annual rate through 2045 (Woods & Poole Economics, 2019). The average household size in the Region is close to the state’s average of 2.5 people per household.The annual employment growth rate between 1990 and 2018 averaged at 1.7% in the Region, while the statewide rate was 2.3%. The top regional industries in employment terms for 2018 in descending order were: government or governmental enterprises, retail trade, healthcare or social assistance, and food services and construction. The regional unemployment rate trend has improved noticeably since the 1990s and the 2008 Great Recession through 2019 (BLS, 2020).

W A S H I N G T O NC O U N T Y

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Legend:1 Dot = 100

Total Population

Area Population Density

This plan responds to the Planning Emphasis Area established in 2018 by the FDOT Office of Policy Planning, Planning: TPOs are encouraged to plan for and coordinate with rural governmental entities both within their planning boundaries as well as those areas outside of the current boundaries that are impacted by transportation movements between regions.

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Over the last decade, there has been an 8% increase in hotel and motel units; where the largest increases have taken place in Escambia and Okaloosa Counties. There has been a substantial hurricane-related decrease in units in Bay County following Hurricane Michael in 2018.

The land use in the Emerald Coast Region is about 60% agricultural in nature, with concentrations in the northern and eastern edges of the Region. Institutional land use makes up 19% of the Region, residential at 7%, and recreational accounts for 4%.

The commercial airport activity has increased considerably since 1990, rising to over two million enplanements combined in the Region in 2018. The three commercial airports in the Region, Pensacola, Destin-Ft. Walton, and Northwest Florida Beaches experienced a robust annual rate of enplanements averaging 4% between 1990 and 2018. This rate is projected to decelerate to 2.7% annually through 2045 (FAA, 2019).

Vehicle registrations in the Region have increased by only 0.7% annually between 2010 and 2019, reaching over 907,300 in 2019. This rate was below the statewide average of 1.8% per year over the same decade. The growth rate of licensed drivers in the Region (1.0%) was below that of the state’s (1.6%) between 1997 and 2019. However, Walton (4.1%) and Santa Rosa (2.3%) Counties showed substantially higher growth rates than the regional and state averages. A large majority of the commuting patterns for the Region are within the ten counties, with Bay County being the most integrated at 98%, and Holmes County being the least integrated at 81%.

Region’s Hotel and Motel Units

23.1 23.9 23.9 23.9 23.7 24.4 24.4 24.3 25.4 24.9

2009 2010 2011 2012 2013 2014 2015 2016 2017 2018 20190

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Total UnitsHotels Units Motels Units

Regional Unemployment Rates - Historical

1990

1992

1994

1996

1998

2000

2002

2004

2006

2008

2010

2012

2014

2016

2018

0.0%

2.0%

4.0%

6.0%

8.0%

10.0%

12.0%Florida Regional (10-county) United States

The real per capita income in the Region shows a mixed picture. In terms of levels, the regional average was about 11% below the statewide per capita income of about $45,000 (in 2012$) in 2017 (Woods & Poole Economics, 2019). There is also large variation in income levels across the Region, with Calhoun County’s being relatively lowest at $24,600 , and other largely rural counties such as Washington, Holmes, and Jackson at under $30,000, all well below the relatively highest per capita level experienced in Walton County’s at $52,900.

Related to income and living cost, the average poverty rate in the Region was slightly below the State’s, and varied widely by county. The 10-county average poverty percentage was 13.9% as compared to the statewide average of 14.1% in 2018. However, the largely rural Holmes, Jackson, Calhoun and Washington Counties all experienced substantially higher rates above 20%, while Santa Rosa and Walton Counties are below the regional and state averages with rates of 9.5% and 11.4%, respectively.

The Region produced goods and services totaling over $41.2 Billion (in 2012 Dollars) in 2017. The annual growth rate in real gross regional product (GRP) was (at 2.6%) below the state’s average rate at 3% (from 1990 to 2017). The relatively weakest GRP growth rates were in Holmes (1.6%) and Gulf (0.8%) Counties, while the strongest growth rates occurred in Walton (6.1%) and Santa Rosa (3.5%) Counties.

In terms of educational attainment, the Region has a higher percentage of high school graduates (89%) than the state average (87.6%). However, the percentage of Bachelor’s degree holders (24.8%) in the Region falls short of the statewide average (28.5%), particularly across its more rural counties where the rates are under half the state average.

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The journey-to-work patterns also show that the largely rural counties in the Region, such as Holmes, Calhoun, and Washington have smallest percentages (around 50%) of flows within their own counties, making them most dependent on employment opportunities within the nearby metropolitan areas, and the transportation linkages between them.

Overall, the region has experienced notable growth since the 1990s, and as it has matured its growth path is expected to decelerate in the coming quarter century. The challenge will be to boost the growth around the Region, and particularly its much less developed rural parts, to at least match the average statewide performance to improve the relative quality of life of its stakeholders. Transportation system improvements would be part of the multi-faceted solutions set.

Commuting - Journey to Work

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% Total within the Region (10 County) % of Total within the Region (10-County)

Stakeholder EngagementCoordination with stakeholders from the local, regional, and state levels was performed to understand key transportation and land development topics of significance. This included major planned future developments, notable land use changes, and known deficiencies in corridors that link rural areas to the Metropolitan Planning Area (MPA).

The coordination consisted of a survey of regional stakeholders and follow-up interviews where appropriate. Coordination with stakeholders from the local, regional, and state levels was performed (December 2019 – February 2020) to understand key transportation and land development topics of significance. This included major planned future developments, notable land use changes, and known deficiencies in corridors that link rural areas to the Metropolitan Planning Area (MPA). The coordination consisted of a survey of regional stakeholders and follow-up interviews where appropriate. The survey was distributed to the organizations shown below. A summary of the results follows:

ECRC Member Organizations

Federal Government Organizations (USFWS, USEPA,

USNPS, USFS)

Tourist Development Organizations

Agricultural Organizations

Apalachee Regional Planning Council

Native American Tribes AARP and AMAC Utilities

County Governments and School Boards/Districts

Military Bases, Stations, and Organizations

Florida Trucking Association

Timber, Private Development, Ranches, and Large Landowners

State Government Organizations (FDOT, FWC, NWFWMD, FFS, FDEP, FDEO, FDEM, ALDOT)

Economic Development Organizations Environmental Conservation Organizations

Transportation Related Organizations for Freight, Rail, Water Ports, Airports,

Recreation)

Stakeholders were asked to identify and point out deficiencies in the key transportation corridors linking the Region’s metropolitan and rural areas. Key transportation corridors were identified and ranked in terms of importance (Q1) with the following noted as the most important linkages: US 90, US 98, US 231, and the I-10 Connector. Strengths and weaknesses were then assessed (Q2) noting opportunities to improve access to ports and airports, transit, access to markets and materials, along with other economic development needs such as access to technology and workforce. Stakeholders were also asked about regional opportunities (Q5) noting issues of congestion, growth, connectors, workforce, tourism, and hurricane recovery. Destin to Fort Worth Beach, I-10, US 98, and Crestview SR 85 were called out on issues of congestion. Another notable issue identified by stakeholders was lack of connectors, or routes, both North to South and East to West, especially for routes to Alabama. One suggestion was creating a North-South connector in western Escambia County to I-10, to alleviate US 29. Stakeholders also commented on a need for East-West roads for commuters and evacuation routes. Other questions not summarized below, but incorporated into the overall analysis, requested input on proposed developments that depend on rural to urban connectivity (Q4), and any other specific deficiencies (Q3). Some of the responses requested specific improvements at a local scale such as localized intersection improvements not within the scope of this Regional Plan. Other responses identified regional deficiencies aligning with responses from the other questions and are therefore not individually listed in this summary report. However, input received from both of these aligned with and supported the overall survey responses, summarized in the following tables.

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Strengths Score ScoreWeaknesses

Quality of life 3.7

Travel & tourism 3.4

Availability of land 3.3

Proximity & qualityof highways & roads 3.2

Proximity & availabilityof natural resources 3.2

Cost of land 3.1

Area educational institutes 3.1

Proximity & qualityof evacuation routes 3.1

General business climate(e.g. taxes, regulations) 3.1

Proximity & quality of air transportation service 1.6

Proximity & qualityof cycling paths 1.9

Proximity & qualityof rail service 1.9

Proximity & quality of ports 2.3

Quality/adequacy ofbroadband and mobile svs. 2.4

Proximity & qualityof transit routes 2.4

Available supply of workers 2.5

Access to marketsfor products/services 2.5

Skill level of availableworkforce 2.6

Quality/adequacyof water/sewer services 2.7

Labor costs comparedto other potential locations 2.8

Access to materials& supplies 2.9

Q1. Key transportation corridors that link the region’s urban and rural areas.

Q2. Strengths and weaknesses of main corridors connecting rural and metropolitan areas within the region. Scores ranged from 5 (strong/high) to 0 (not applicable).

Corridor Rank

Corridor Name

Percentage of Responses

1 US 90 (SR 10) 62.8%

2 US 98 56.4%

3 US 231 (SR 75) 56.4%

4 I-10 Connector 53.8%

5 SR 77 43.6%

6 SR 79 38.5%

7 SR 20 37.2%

8 SR 71 32.1%

9 US 331 29.5%

10 US 29 21.8%

Challenges & Opportunities for SuccessGrowthHousing/developmentCongestionEast-West connectionsInfrastructure development (internet, central sewers, potable water lines)WorkforceJobsFunding Business/commerceTourismHurricanes / Hurricane Recovery

Q5. The key challenges and opportunities facing the region (blended together, as challenges represent opportunities for success).

5


Rural Regional Needs and RecommendationsUpon analyzing all of the transportation, location-based (activity centers - see the Rural Regional Plan Webmap), population, and employment data collected with stakeholder input, a series of policy and infrastructure recommendations were identified.

In order to develop, enhance, and maintain a transportation network that supports the rural and metropolitan areas, it is recommended that the rural areas (outside of the existing Transportation Planning Organization (TPO) boundaries) for the following seven-County rural area be adopted as a single rural region by the ECRC: Bay, Escambia, Santa Rosa, Okaloosa, Walton, Holmes, and Washington counties. Bay County remains as a single-county Transportation Planning Organization (TPO). Apalachee Regional Planning Council would retain primary planning jurisdiction for Jackson, Calhoun, and Gulf Counties; however, joint planning coordination is recommended to continue for these three counties.

With the ECRC stepping forward to fulfill the additional role of a rural regional planning council, the ECRC would guide regional coordination among the ten counties, their officials, and planning organizations to develop intergovernmental solutions to support the growth of the Region and to provide a voice for transportation planning needs for the rural areas.

Establish the ECRC as the Regional Transportation Planning Organization.

Develop a Regional Transportation Plan (RTP)

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Develop a Regional Transportation Plan to identify needs and prioritize transportation projects for rural transportation projects that support the growth of the region. The RTP is recommended to cover a twenty year planning horizon, with major updates every five years and minor revisions to priority lists on an annual basis. The transportation projects identified in the RTP would be prioritized to assist FDOT with potential incorporation of projects into the STIP, as well as provide support for potential grants and other local, state, or federal opportunities for project implementation.

Timeline: Annually with minor update / Needs List every year; major update every five years.

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Designate key regional rural transportation corridors and projects. Identify and designate key transportation facilities as Regional Rural Routes that connect rural and metropolitan areas through the Region. Within these corridors, this plan identifies Phase 1 study recommendations for future projects to provide key linkages between the rural and urban area.

SEE DETAILED MAP FOR INFORMATION ON RURAL-TO-URBAN MULTI-MODAL NEEDS.

CORRIDOR COUNTY/COUNTIES PROJECT

CR 191 from SR 87 (Milton) to State Line (to AL SR 137 to Andalusia, AL) Santa Rosa Provide additional capacity on CR 191 and shared-use

path connection to SR 4.

SR 189 from US 90 to SR 4 (Baker) to State Line Okaloosa Provide additional capacity on SR 189 (truck and car).

SR 22 from US 98 (Callaway/Panama City area) to SR 71 (Wewahitchka) Bay, Gulf Provide additional capacity on SR 22.

SR 4 from US 98 (Century) to US 90 (Milligan) west of Crestview

Escambia, Santa Rosa, Okaloosa

Provide additional capacity on SR 4 and shared-use path.

US 29 from I-10 to Century (to Flomaton and Brewton, AL) Escambia Provide commercial truck parking. FDOT truck weigh

station on US 29 near Pinoak Lane.

SR 97 from US 29 to State Line (leading to Atmore, AL) Escambia Provide additional capacity on SR 97.

SR 87 from Milton to State Line (to Brewton, AL) Santa Rosa Provide additional capacity and SIS Facility Designation.

SR 89 from SR 87 (north of Milton) to Jay and State Line (to Brewton, AL) Santa Rosa Provide additional capacity on SR 89.

SR 85 from US 90 to State Line (to Florala, AL) Okaloosa Provide additional capacity on SR 85 from

end of 4-lane north of Crestview.

SR 83 from US 90 (Defuniak Springs) to State Line (to AL SR 153 to Opp, AL) Okaloosa Provide additional capacity on SR 83.

US 90 from Escambia County at State Line to Okaloosa County)

Escambia, Santa Rosa, Okaloosa

Provide additional capacity for segments currently not 4-laned.

US 90 from Walton to Jackson County Walton, Holmes, Washington, Jackson


SR 20 from SR 79 (Ebro) to SR 71 (Blountstown)

Walton, Washington, Bay, Calhoun Provide additional capacity / safety on SR 20.

US 331 from US 90 (Defuniak Springs) to Paxton at State Line (to Florala, AL) Walton Provide additional capacity / safety on northern

segment of US 331.

US 331 from US 90 (Defuniak Springs) to US 98 Walton Park and Ride lots. DeFuniak Springs vicinity (north

DeFuniak Springs CR 83 vicinity).

SR 79 from SR 388 to I-10 Bay, Washington, Holmes Provide 6-lane capacity (SIS Unfunded Needs Plan Project #112).

SR 77 from SR 390 to I-10 Bay, Washington Provide 6-lane capacity (SIS Unfunded Needs Plan Project #688).

US 231 from SR 20 to State Line (to AL US 231 to Dothan, AL) Bay, Jackson

Provide additional capacity (SIS Unfunded Needs Plan Projects #27, 773) except for No-Build segments identified in PD&E.

7


Coordinate and maintain a regional Transportation Advisory Committee (TAC).Establish, coordinate, and maintain a regional Transportation Advisory Committee to formalize and incorporate the regional transportation planning process with the local representatives. The TAC is recommended to be comprised of two to three representatives per County or rural area, preferably consisting of a county representative, city representative, and a third community (at large) representative. The TAC shall provide input into the development of the RTP, increase awareness of transportation opportunities, and increase the relationship of stakeholders across the rural communities. TAC meetings should be held quarterly (4 meetings per year) or bimonthly (6 meetings per year).

Timeline: Ongoing. Maintain TAC meetings quarterly or bimonthly.

Develop and maintain a needs list of rural transportation projects.In order to support regional planning efforts, it is recommended that a needs list of rural transportation projects be developed in order to support the goals of the RTP. The needs list should be informed by TAC members and be updated on an annual basis.

Timeline: Ongoing / Annually.

Enhance transportation public engagement and outreach in the rural areas. Enhancing public engagement and outreach for transportation planning efforts is recommended in rural areas to support the development of the RTP, implementation of the TAC, and updating regional priorities on an annual basis.

ConclusionTransportation facilities provide an opportunity to support and enhance economic development, economic sustainability, and quality of life for residents in rural and metropolitan areas.

This plan developed key recommendations:

• Establish the ECRC as the Regional Transportation Planning Organization.

• Develop a Regional Transportation Plan (RTP).

• Coordinate and maintain a regional Transportation Advisory Committee (TAC).

• Designate key regional rural transportation facilities.

• Develop and maintain a needs list of rural transportation projects.

• Enhance transportation public engagement and outreach in the rural areas

Implementing these recommendations will aid in developing a consistent planning approach for the Region, address the challenges and promote opportunities for the development of the transportation system, and promote the vitality of the Region as a whole. The recommendations will also be incorporated into regional transportation projects, such as the Gulf to Gadsen Freight Logistics Zone Strategic Plan and Rural to Urban Connections to Dothan, and the recommendations will be used to guide the development of the RTP (Regional Rural Transportation Plan Phase II).

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REGIONAL RURAL TRANSPORTATION PLAN Draft Summary Report

Map number is not a priority rank number. RURAL-TO-URBAN MULTI-MODAL NEEDSMAP NO. CORRIDOR COUNTY/

COUNTIES PROJECT* FREIGHT/TRUCKING (INCLUDES AGRICULTURE)

ACTIVITY CENTER CONNECTIONS** RECREATION TOURISM MILITARY

1

CR 191 from SR 87 (Milton) to State Line (to AL SR 137 to Andalusia, AL)

Santa Rosa Provide additional capacity on CR 191 and shared-use path and shared-use path connection to SR 4.

Agricultural and timber truck routes Rural access to NAS Whiting Field, healthcare, shopping, and employment in Milton

Long-distance bike connection into Blackwater River State Forest and along SR 4

Promotes eco-tourism in Blackwater River State Forest

Access to NAS Whiting Field

2SR 189 from US 90 to SR 4 (Baker) to State Line Okaloosa Provide additional capacity on SR 189

(truck and car).Agricultural and timber truck routes Alternative route into Crestview

activity centers from rural areaUsed during peak tourist travel time to link to SR 85 and coastal points

Commuting patterns from north end of county to Eglin AFB

3

SR 22 from US 98 (Callaway/Panama City area) to SR 71 (Wewahitchka)

Bay, Gulf Provide additional capacity on SR 22. Agricultural and timber truck routes Activity center and employment connection from Gulf County to Bay County

Alternative access to Apalachicola National Forest

Alternative access to recreation and ecotourism areas in Gulf and Franklin Counties

Alternative access to Tyndall AFB

4SR 4 from US 98 (Century) to US 90 (Milligan) west of Crestview Escambia, Santa Rosa,

OkaloosaProvide additional capacity on SR 4 and shared-use path.

Agricultural and timber truck routes Activity center connections Recreational access to Blackwater River State Forest

Access to ecotourism in rural areas

5 US 29 from I-10 to Century (to Flomaton and Brewton, AL) Escambia Provide commercial truck parking. FDOT truck weigh station on US 29 near Pinoak Lane.

Freight Mobility Trade Plan

6 SR 97 from US 29 to State Line (leading to Atmore, AL) Escambia Provide additional capacity on SR 97. Agricultural and timber truck routes Activity center connections and connection to Atmore, AL

7 SR 87 from Milton to State Line (to Brewton, AL) Santa Rosa Provide additional capacity and SIS Facility Designation.

Agricultural and timber truck routes Activity center connections and connection to Brewton, AL

Access to NAS Whiting Field

8 SR 89 from SR 87 (north of Milton) to Jay and State Line (to Brewton, AL)

Santa Rosa Provide additional capacity on SR 89. Agricultural and timber truck routes Activity center connections and connection to Brewton, AL

9 SR 85 from US 90 to State Line (to Florala, AL) Okaloosa Provide additional capacity on SR 85 from end of 4-lane north of Crestview.

Agricultural and timber truck routes Activity center connections Tourist travel pathway during holiday peak seasons

10 SR 83 from US 90 (Defuniak Springs) to State Line (to AL SR 153 to Opp, AL)

Okaloosa Provide additional capacity on SR 83. Agricultural and timber truck routes Activity center connections

11 US 90 from Escambia County at State Line to Okaloosa County) Escambia, Santa Rosa, Okaloosa


Agricultural and timber truck routes Activity center connections Alternative access to recreational areas

12 US 90 from Walton to Jackson County Walton, Holmes, Washington, Jackson


Agricultural and timber truck routes Activity center connections Alternative access to recreational areas

13 SR 20 from SR 79 (Ebro) to SR 71 (Blountstown) Walton, Washington, Bay, Calhoun

Provide additional capacity / safety on SR 20. Agricultural and timber truck routes Activity center connections Alternative access to recreational areas

14 US 331 from US 90 (Defuniak Springs) to Paxton at State Line (to Florala, AL)

Walton Provide additional capacity and/or safety improvements on US 331.

Activity center connections Popular route from Alabama to beaches

Heavy summer tourist connection from Alabama

15 US 331 from US 90 (Defuniak Springs) to US 98 Walton Park and Ride lots. DeFuniak Springs vicinity (north DeFuniak Springs CR 83 vicinity).

Activity center connection to GoWal bus service

16 SR 79 from SR 388 to I-10 Bay, Washington, Holmes

Provide 6-lane capacity (SIS Unfunded Needs Plan Project #112).

Connection to NW FL Beaches Airport

17 SR 77 from SR 390 to I-10 Bay, Washington Provide 6-lane capacity (SIS Unfunded Needs Plan Project #688).

Connection to NW FL Beaches Airport

18US 231 from SR 20 to State Line (to AL US 231 to Dothan, AL) Bay, Jackson Provide additional capacity (SIS Unfunded

Needs Plan Projects #27, 773) except for No-Build segments identified in PD&E.

Activity center connections Tourist connection from Alabama

19 I-10 Connector from Panama City to AL State Line (SIS Unfunded Need Project # 1911)

Bay, Washington, Calhoun, Jackson

I-10 Connector from Panama City to AL State Line.

Truck and freight access to I-65 Activity center connection to NW FL Beaches Airport via SR 388

Fl-Al connector from Bay County to Dothan

20FL-AL Connector from I-10 to I-65 (SIS Unfunded Need Project #24) Escambia FL-AL Connector Truck and freight access to I-65 Activity center connections Fl-Al connector from

Escambia County, FL to Escambia County, AL

*Projects are not listed for which FDOT has already programmed, completed, or identified a PD&E or other major study.

**Activity Center Connections such as employment, commercial, industrial, military, health care, education.

regional rural transportation plan summary report · through 2045 (woods & poole economics,...

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