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Required Credit / Disclaimer Statement “The preparation of the document was financed in part with

funding from the United States Department of Transportation (USDOT) and administered by the Nebraska Department of Transportation (NDOT). The opinions, findings, and conclusions expressed in this publication are those of the authors and do not necessarily represent USDOT, or NDOT.”

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Acknowledgements The Lincoln Metropolitan Planning Organization would like to acknowledge the following who provided input in the development of the 2050 Long Range Transportation Plan.

MPO Officials Committee Leirion Gaylor Baird, Mayor, City of Lincoln

James Michael Bowers, Chair, City Council

Tammy Ward, Vice-Chair, City Council

Rick Vest, Chair, County Board

Deb Schorr, Vice-Chair, County Board

Richard Meginnis, City Council

Sean Flowerday, County Board

John Selmer, Director, Nebraska Department of Transportation (representative Ryan Huff)

MPO Technical Committee David Cary, Tri-Chair, Director, Lincoln-Lancaster County Planning Department Pam Dingman, Tri-Chair, Lancaster County Engineer Elizabeth Elliott, Tri-Chair, Director, Lincoln Transportation and Utilities Department Ronald Caldi, Assistant Director of Transportation (City Engineer), Lincoln Transportation and Utilities Department (representative Thomas Shafer and previous member Lonnie Burkland) Roger Figard, Executive Director, Railroad Transportation Safety District Paul Barnes, Long Range Principal Planner, Lincoln-Lancaster County Planning Department Larry Legg, Assistant County Engineer, Lancaster County Engineering Erin Sokolik, Assistant City Engineer, Lincoln Transportation and Utilities Department Kellee Van Bruggen, Multi-Modal Transportation Planner, Lincoln-Lancaster County Planning Department

Dan Marvin, Director, Lincoln Urban Development Department (representative Wynn Hjermstad or Richard Bishop) Gary Bergstrom, Air Quality Supervisor, Lincoln-Lancaster County Health Department Lynn Johnson, Director, Lincoln Parks & Recreation Department (representative Sara Hartzell or Robert Bartja) Michael Davis, Transit Manager, StarTran (representative Brian Prauner) David Haring, Executive Director, Lincoln Airport Authority (representative Chad Lay) Tom Goodbarn, District 1 Engineer, Nebraska Department of Transportation Craig Wacker, Planning and Project Development Manager, Nebraska Department of Transportation Kelly Oelke, City Administrator, City of Hickman Stephanie Fisher, City Administrator, City of Waverly

Non Voting Members Justin Luther, Federal Highway Administration

Gerri Doyle, Federal Transit Administration

Susan Larson Rodenburg, Pedestrian & Bicycle Advisory Committee

Paul Zillig, Lower Platte South NRD

Community Committee Tracy Corr, Planning Commission Tom Beckius, Planning Commission Alonzo Ball, Planning Commission Dick Campbell, Planning Commission Tracy Edgerton, Planning Commission Deane Finnegan, Planning Commission Cristy Joy, Planning Commission

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Cindy Ryman Yost, Planning Commission Dennis Scheer, Planning Commission Burdette Piening, Agriculture Silas Clarke, Small Communities Sam Manzitto, Developer Nader Sepahpur, Business Owner Bryan Seck, Economic Development DaNay Kalkowski, Development Attorney Marilyn McNabb, Sustainability/Resiliency Meghan Sittler, Natural Resources/Spring Creek Prairie Peter Hind, Design/Architect Karalyn Hoefer, Realty Anna Eickholt, Country Club Neighborhood Association Vishnu Reddi, Near South Neighborhood Association Megan Ourada, UPCO (Neighborhood Association) Grant Daily, South Salt Creek NA Susan Larson Rodenburg, Multi-Modal/ Pedestrian and Bicyclist Advisory Committee Jose Lemus/Kieran Kissler, Underrepresented Demographic Groups/ Civic Nebraska Marco Barker, Education/UNL Steve Ingracia, Technology/Engineering Firm Todd Ogden, Downtown Lincoln Association Sheila Dorsey Vinton, Health/Human Services/Asian Community and Cultural Center Kelly Oelke, City of Hickman Dave Johnson, Architect Stephanie Fischer, City of Waverly

Project Oversight Planning Committee Paul Barnes, Lincoln-Lancaster County Planning Department

Andrew Thierolf, Lincoln-Lancaster County Planning Department

Kellee Van Bruggen, Lincoln-Lancaster County Planning Department

Allan Zafft, Lincoln-Lancaster County Planning Department

Thomas Shafer, Lincoln Transportation and Utilities Department

Dan Carpenter, Lincoln Transportation and Utilities Department (previous member Mark Lutjeharms)

Erin Sokolik, Lincoln Transportation and Utilities Department

Roberto Partida, Lincoln Transportation and Utilities Department

Brian Praeuner, StarTran

Wynn Hjermstad, Lincoln Urban Development Department

Sara Hartzell, Lincoln Parks & Recreation Department

Bobby Bartja, Lincoln Parks & Recreation Department

Larry Legg, Lancaster County Engineering

Chris Schroeder, Lincoln-Lancaster County Health Department

Gary Bergstrom, Lincoln-Lancaster County Health Department

Craig Wacker, Nebraska Department of Transportation

Justin Luther, Federal Highway Administration

Gerri Doyle, Federal Transit Administration

Consultant Team Felsburg Holt & Ul lev ig

Jenny Young, Project Manager

Jesse Poore, Deputy Project Manager

Jessica Jurzenski

Megan Ornelas

Ajdin Hamzagic

Dale Tischmak

Cambridge Systemat ics

Sean McAtee

Mathew Trostle

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Table of Contents Page

1. Introduction ........................................................................................................................................ 1-1 Metropolitan Planning Organization ............................................................................................................................. 1-3

Reason for Planning .................................................................................................................................................................. 1-3

Compliance with Federal Regulations .......................................................................................................................... 1-4

Plan Update Process ................................................................................................................................................................. 1-7

Completed Projects ................................................................................................................................................................... 1-8

2. Vision, Goals, and Performance Measures ............................................................................. 2-1 Transportation Vision and Goals....................................................................................................................................... 2-2

Performance Measures .......................................................................................................................................................... 2-6

3. Outreach and Public Participation ........................................................................................... 3-1

Public Engagement Process ............................................................................................................................................... 3-1

Public Engagement Stakeholders .................................................................................................................................. 3-7

Key Themes of Public Input ................................................................................................................................................ 3-9

4. Current and Future Needs Assessment .............................................................................. 4-1

Land Use and Demographics.............................................................................................................................................. 4-1

Travel Patterns and Trends ................................................................................................................................................ 4-16

Roads and Bridges ................................................................................................................................................................. 4-22

Active Transportation ............................................................................................................................................................ 4-41

Transit .............................................................................................................................................................................................. 4-51

Intermodal Connections ..................................................................................................................................................... 4-53

Rail .............................................................................................................................................................................................. 4-54

Existing Freight System ...................................................................................................................................................... 4-56

Existing Airports and Airfields ......................................................................................................................................... 4-59

Safety .............................................................................................................................................................................................. 4-62

5. Needs Based Plan ........................................................................................................................... 5-1 Roadway ............................................................................................................................................................................................5-2

Goods and Freight Movement ........................................................................................................................................ 5-22

Airports and Airfields .............................................................................................................................................................. 5-23

Bicycle .............................................................................................................................................................................................. 5-23

Pedestrian ..................................................................................................................................................................................... 5-26

Trails ............................................................................................................................................................................................... 5-26

Transit ............................................................................................................................................................................................... 5-31

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6. Funding Outlook ............................................................................................................................. 6-1

Revenue Forecasts ..................................................................................................................................................................... 6-1

Resource Allocation ................................................................................................................................................................. 6-15

Funding Strategy ..................................................................................................................................................................... 6-22

Future Funding Considerations ..................................................................................................................................... 6-25

7. Fiscally Constrained Plan ............................................................................................................. 7-1

Project Prioritization Process ............................................................................................................................................. 7-2

Fiscally Constrained Plan Elements ............................................................................................................................... 7-6

Future Congestion Levels ................................................................................................................................................... 7-23

Air Quality ...................................................................................................................................................................................... 7-26

Environmental Justice and Equity ............................................................................................................................... 7-30

Illustrative Plan ......................................................................................................................................................................... 7-34

8. Implementation Plan .................................................................................................................... 8-1

Policies and Action Steps ....................................................................................................................................................... 8-1

Mitigating Impacts to Environmental, Social, and Cultural Resources ............................................... 8-30

Relationship to Transportation Improvement Program ................................................................................ 8-35

Amendment Process ............................................................................................................................................................. 8-35

Appendices Appendix A – LRTP Meetings

Appendix B – Public Engagement Summaries

Appendix C – Land Use Forecasts

Appendix D – Travel Demand Model Documentation and User Guide

Appendix E – Congestion Management Process

Appendix F – Project Prioritization Process

Appendix G – Roadway and Trail Project Scoring Results

Appendix H – Environmental Overview

List of Figures Figure 1.1 Lincoln Metropolitan Planning Area ....................................................................................................... 1-2

Figure 1.2 Major Projects Completed Since 2017 LRTP ....................................................................................... 1-9

Figure 2.1 PlanForward Themes and LRTP Goals .................................................................................................. 2-2

Figure 2.2 Equity Measure of Transit Service Frequency ................................................................................. 2-15

Figure 2.3 Equity Measure Access to On-Street and Trail Network .......................................................... 2-16

Figure 2.4 Equity Measure of Travel Time to Work .............................................................................................. 2-17

Figure 2.5 Equity Measure of Road Conditions ......................................................................................................2-18

Figure 3.1 Phases of LRTP Public Engagement Strategy .................................................................................. 3-1

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Figure 3.2 Distribution of Comments by Transportation Topic .....................................................................3-2 Figure 3.3 Perception of Ease of Travel by Mode 2016 and 2020 ..................................................................3-3 Figure 3.4 Public Input about the Most Pressing Transportation Challenges .................................... 3-4 Figure 3.5 Public Survey and Focus Group Distribution of Transportation Funding ......................3-5 Figure 3.6 Goals Ranked by Focus Groups and the Public .............................................................................. 3-8 Figure 3.7 Four Future Workshop Scenarios for 2050 ........................................................................................ 3-8

Figure 4.1 Lincoln Metropolitan Planning Areas .................................................................................................... 4-2 Figure 4.2 Household Growth ............................................................................................................................................. 4-3 Figure 4.3 Commercial Growth .......................................................................................................................................... 4-5 Figure 4.4 Industrial Growth ................................................................................................................................................ 4-6 Figure 4.5 Equity Index ............................................................................................................................................................ 4-9 Figure 4.6 Older Adults .......................................................................................................................................................... 4-10 Figure 4.7 People with Disabilities .................................................................................................................................. 4-11 Figure 4.8 People with Limited English Proficiency .......................................................................................... 4-12 Figure 4.9 Single Parent Households ........................................................................................................................... 4-13 Figure 4.10 People with Low Income ............................................................................................................................. 4-14 Figure 4.11 BIPOC Communities ...................................................................................................................................... 4-15 Figure 4.12 Workflows .............................................................................................................................................................. 4-16 Figure 4.13 Travel Time to Work ........................................................................................................................................ 4-16 Figure 4.14 Distance from Home to Work .................................................................................................................. 4-17 Figure 4.15 Distance and Direction from Home to Work.................................................................................. 4-17 Figure 4.16 Housing + Transportation Index .............................................................................................................. 4-18 Figure 4.17 Zero Vehicle Households ............................................................................................................................. 4-21 Figure 4.18 Roadway Surface Conditions (2017) ..................................................................................................... 4-23 Figure 4.19 Roadway Surface Conditions by Percent (2018) .......................................................................... 4-24 Figure 4.20 City of Lincoln Surface Maintenance Activity ................................................................................ 4-25 Figure 4.21 Bridge Ratings ................................................................................................................................................... 4-26 Figure 4.22 National Highway System .......................................................................................................................... 4-27 Figure 4.23 Existing Functional Classification .......................................................................................................... 4-30 Figure 4.24 Existing Through Lanes ................................................................................................................................ 4-31 Figure 4.25 Current (2019) Daily Traffic Volumes.................................................................................................... 4-32 Figure 4.26 Current Congestion Levels V/C ............................................................................................................... 4-34 Figure 4.27 Congestion Levels Over Time .................................................................................................................. 4-35 Figure 4.28 2035 Daily Traffic Forecasts E+C ............................................................................................................. 4-36 Figure 4.29 2050 Daily Traffic Forecasts E+C............................................................................................................. 4-37 Figure 4.30 2035 Congestion Levels E+C ..................................................................................................................... 4-38 Figure 4.31 2050 Congestion Levels E+C ..................................................................................................................... 4-39 Figure 4.32 Annual Electric Vehicle Sales in Nebraska ...................................................................................... 4-40 Figure 4.33 BikeLNK Ridership .......................................................................................................................................... 4-42

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Figure 4.34 Bike Demand and Bikeshare Locations ............................................................................................ 4-43 Figure 4.35 Trail and On-Street Bicycle Activity ...................................................................................................... 4-44 Figure 4.36 Citywide Network Bicycle Level of Stress ......................................................................................... 4-45 Figure 4.37 Existing On-street Bike Network ........................................................................................................... 4-47 Figure 4.38 Future County Bike Trail Connections ............................................................................................... 4-48 Figure 4.39 Existing Sidewalks and Trails .................................................................................................................... 4-50 Figure 4.40 StarTran Ridership ............................................................................................................................................ 4-51 Figure 4.41 StarTran Fixed Bus Routes ......................................................................................................................... 4-52 Figure 4.42 Autonomous Microtransit: Downtown Concept ......................................................................... 4-53 Figure 4.43 Railroad At-grade Crossings ..................................................................................................................... 4-55 Figure 4.44 Major Truck Corridors .................................................................................................................................... 4-56 Figure 4.45 Freight Movement by Tons and Value (2015) ................................................................................ 4-58 Figure 4.46 Freight Movement by Tons and Value (2045) ............................................................................... 4-58 Figure 4.47 Truck Routes and Destinations ............................................................................................................... 4-59 Figure 4.48 Lincoln Airport Environs Noise District .............................................................................................. 4-60 Figure 4.49 Lancaster County Airports and Airfields ............................................................................................ 4-61 Figure 4.50 Injury and Fatality Crashes per 100K Population ........................................................................ 4-62 Figure 4.51 Crash Severity ..................................................................................................................................................... 4-62 Figure 4.52 National Proportion of Fatalities Inside/Outside Vehicle, 1997–2018 .............................. 4-64 Figure 5.1 Urban Area Roadway Capital Projects .................................................................................................. 5-4 Figure 5.2 Rural Road Capital Projects ......................................................................................................................... 5-16 Figure 5.3 NDOT Highway Projects ................................................................................................................................ 5-21 Figure 5.4 Recommended Bike Network .................................................................................................................. 5-25 Figure 5.5 Trail Projects .........................................................................................................................................................5-28

Figure 6.1 Committed and Restricted Funds by Category ............................................................................ 6-18 Figure 6.2 Community Input on Funding Priorities .......................................................................................... 6-20 Figure 6.3 Project Oversight Planning Committee and Community Committee Input

on Resource Allocation Scenarios .......................................................................................................... 6-22 Figure 6.4 Comparison of Resource Allocation Scenarios .............................................................................. 6-23 Figure 6.5 Recommended Resource Allocation ($M) ...................................................................................... 6-24 Figure 7.1 Fiscally Constrained Rural Road & Bridge Capital Projects ................................................... 7-10 Figure 7.2 Fiscally Constrained Urban Roadway Capital Projects .............................................................7-16 Figure 7.3 Priority Trail Projects ........................................................................................................................................ 7-21 Figure 7.4 Congestion Levels............................................................................................................................................. 7-23 Figure 7.5 2035 Congestion Levels (Fiscally Constrained Plan) ................................................................. 7-24 Figure 7.6 2050 Congestion Levels (Fiscally Constrained Plan) .................................................................. 7-25 Figure 7.7 Example Pollutant Emission Rates for Lincoln Arterial Streets (May weekday

during 11AM hour) ............................................................................................................................................. 7-29

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Figure 7.8 Typical Weekday Pollutant Emission Totals for Fiscally Constrained Road Network .................................................................................................................................................... 7-30

Figure 7.9 Illustrative Plan (Unfunded) NDOT Highway Projects .............................................................. 7-35 Figure 7.10 Illustrative Plan (Unfunded) Rural Road & Bridge Capital Projects ................................ 7-38 Figure 7.11 Illustrative Plan (Unfunded) Urban Roadway Capital Projects .......................................... 7-42 Figure 7.12 Illustrative Plan (Unfunded) Trail Projects ....................................................................................... 7-45

List of Tables Table 1.1 Major Projects Completed Since 2017 LRTP ....................................................................................... 1-8

Table 2.1 Relationship of LRTP Goals to FAST Act Requirements .............................................................2-5

Table 4.1 Household and Employment Growth ................................................................................................... 4-4 Table 4.2 Socioeconomic Indicators ............................................................................................................................. 4-8 Table 4.3 Commuter Mode Split ................................................................................................................................... 4-17 Table 4.4 Bridge Conditions ............................................................................................................................................ 4-25 Table 4.5 Planning Level Daily Capacities (Per Through Lane) ............................................................... 4-33 Table 4.6 Vehicle Miles Traveled ................................................................................................................................... 4-35 Table 4.7 City Intersections Above Critical Crash Rates................................................................................ 4-63 Table 5.1 Urban Area Roadway Capital Projects ...................................................................................................5-5 Table 5.2 Two Plus Center Turn Lane Projects ...................................................................................................... 5-11 Table 5.3 Candidate Railroad Grade Separated Crossing Projects ......................................................... 5-13 Table 5.4 Rural Road Capital Projects ......................................................................................................................... 5-17 Table 5.5 NDOT Highway Projects ............................................................................................................................... 5-22 Table 5.6 Trail Projects ......................................................................................................................................................... 5-29

Table 6.1 NDOT Highways Program Funding ($M) ............................................................................................. 6-1 Table 6.2 Rural Roads Program Funding ($M) ...................................................................................................... 6-3 Table 6.3 Urban Roads Program Funding ($M) .................................................................................................... 6-8 Table 6.4 Rail Crossing Program Funds ($M) .......................................................................................................... 6-9 Table 6.5 Transit Program Funds ($M) ....................................................................................................................... 6-12 Table 6.6 Trails, Bicycle and Pedestrian Program Funds ($M) .................................................................. 6-14 Table 6.7 Total Revenue Forecasts ($M) .................................................................................................................... 6-15 Table 6.8 Funding Commitments and Restrictions ......................................................................................... 6-16 Table 6.9 Flexible Funds ..................................................................................................................................................... 6-19 Table 7.1 Resource Allocation ............................................................................................................................................ 7-1 Table 7.2 Roadway Project Evaluation Criteria ...................................................................................................... 7-4 Table 7.3 Trail Projects Evaluation Criteria ............................................................................................................... 7-5 Table 7.4 Weights by Goal Area and Project Category .................................................................................... 7-6 Table 7.5 Fiscally Constrained Rural Road & Bridge Capital Projects ..................................................... 7-8 Table 7.6 Fiscally Constrained Urban Roadway Capital Projects ............................................................. 7-13

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Table 7.7 Priority Transit Projects ................................................................................................................................. 7-18 Table 7.8 Priority Trail Projects ...................................................................................................................................... 7-20 Table 7.9 On-Street Bike Projects to be Constructed with Fiscally Constrained

Roadway Projects ............................................................................................................................................. 7-22 Table 7.10 Daily Travel Time ............................................................................................................................................... 7-26 Table 7.11 Composite Vehicle Pollutant Emission Rates ............................................................................... 7-28 Table 7.12 Composite Daily Pollutant Total Emissions (tons per day) ................................................... 7-28 Table 7.13 Illustrative Plan (Unfunded) NDOT Highway Projects ............................................................. 7-34 Table 7.14 Illustrative Plan (Unfunded) Rural Road & Bridge Capital Projects ................................. 7-36 Table 7.15 Illustrative Plan (Unfunded) Urban Roadway Capital Projects ........................................... 7-39 Table 7.16 Illustrative Plan (Unfunded) Trail Projects ....................................................................................... 7-43

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List of Acronyms ACS American Community Survey

AFV alternatively fueled vehicle

ASP Agency Safety Plan

AV automated vehicle

BIPOC Black, Indigenous, People of Color

BRT bus rapid transit

CMP Congestion Management Process

CNG compressed natural gas

CNT Center for Neighborhood Technology

CO2 carbon dioxide

CUFC/CRFC Critical Urban Freight Corridor/Critical Rural Freight Corridor

DHHS Department of Health and Human Services

E+C Existing + Committed

EJ environmental justice

FARS Fatality Analysis Reporting System

FAST Act Fixing America’s Surface Transportation Act

FAT fatality

FFPP Federal Funds Purchase Program

FHWA Federal Highway Administration

FTA Federal Transit Administration

FY fiscal year

GPTN Great Plains Trails Network

HISP Highway Safety Improvement Program

H+T Housing and Transportation

INJ injury

ISTEA Intermodal Surface Transportation Efficiency Act of 1991

ITS intelligent transportation systems

LEHD US Census Longitudinal Employer-Household Dynamics

LOS level of service

LOTM Lincoln on the Move

LRTP Long Range Transportation Plan

LTS level of traffic stress

LTU Lincoln Transportation and Utilities

LWCF Land and Water Conservation Fund

MAP-21 Moving Ahead for Progress in the 21st Century

MMTC Multimodal Transportation Center

MOVES3 US Environmental Protection Agency Motor Vehicle Emission Simulator software

MPA Metropolitan Planning Area

MPO Metropolitan Planning Organization

NAASQ National Ambient Air Quality Standards

NDOT Nebraska Department of Transportation

NHFN National Highway Freight Network

NHPP National Highway Performance Program

NHS National Highway System

NOx oxides of nitrogen

NRD National Resources District

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NSP Federal Transit Administration National Public Transportation Safety Plan

O&LB Omaha, Lincoln & Beatrice Railway

O&M Operations and Maintenance

OPPD Omaha Public Power District

PDO property damage only

PM2.5 particulate matter less than 2.5 microns in diameter

POPC Project Oversight Planning Committee

RAISE Rebuilding American Infrastructure with Sustainability and Equity

ROW right-of-way

RTSD Railroad Transportation Safety District

SAFETEA-LU Safe, Accountable, Flexible, Efficient Transportation Equity Act: A Legacy for Users

SGR state of good repair

SHSP Strategic Highway Safety Plan

SOV single occupant vehicle

STBG Surface Transportation Block Grant Program

TAMP Transit Asset Management Plan

TAZ transportation analysis zone

TDM Travel Demand Management

TDP Transit Development Plan

TEA-21 Transportation Equity Act for the 21st Century of 1998

TERM Transit Economic Requirements Model

TIP Transportation Improvement Program

TMA Transportation Management Area

TNC Transportation Network Companies

TPM Transportation Performance Management

ULB useful life benchmark

UNL University of Nebraska – Lincoln

UPRR Union Pacific Railroad

UPWP United Planning Work Program

USACE U.S. Army Corps of Engineers

USDOT US Department of Transportation

USPS United States Postal Service

V/C volume to capacity

VHT vehicle hours of travel

VMT vehicle miles of travel

VOC volatile organic compound

VRM vehicle revenue mile