Chapter 2 - Project Origination and Planning

Project origination and planning is the first step in DelDOT’s project development process. Project origination refers to the creation of the project, including initial development and conceptualization of a transportation project. It involves the identification of transportation needs and deficiencies, assessment of alternatives, and the initiation of a project planning process. Project origination typically includes activities such as conducting feasibility studies, evaluating potential impacts, determining project scope, and identifying potential funding sources. It is the starting point for formally defining and advancing a transportation project from an initial idea to a well-defined concept that can be further developed and eventually implemented.

Transportation project planning and programming is regulated at a federal-level and conducted through regional, state, and local-scale to ensure implementation of a process and improvements that consider the needs and desires of the end users. Understanding a project’s origination and purpose and need is crucial to ensure the development of contextually sensitive solutions that effectively address the underlying transportation deficiency. This chapter describes the mechanisms, processes, and associated standards that are used to plan, prioritize, and program projects within the State of Delaware.

2.1 Planning Standards

To be eligible to receive federal funds, a state department of transportation (DOT) is required to carry out a continuing, cooperative, and comprehensive performance-based statewide multimodal transportation planning process in accordance with 23 CFR 450. DelDOT’s Division of Planning is charged with overseeing and coordinating with necessary stakeholders both internal and external to DelDOT to maintain a federally compliant statewide planning process that considers the factors described in 23 U.S.C. 135(d)(1) and 23 CFR 450.206(a). This section of the manual serves to summarize several key aspects of a compliant planning process.

2.1.1 Contributing Organizations

DelDOT is charged with overseeing the entire statewide transportation planning process and for producing the deliverables that are described in Section 2.1.2. Continuous collaboration and coordination are required throughout the planning process to ensure effective constituent involvement. The regulatory requirements of the collaboration required in the planning process is explicitly defined in 23 CFR 450.208. This subsection identifies and further describes the role of organizations that are directly involved in DelDOT’s planning process.

2.1.1.1 Metropolitan Planning Organizations

A Metropolitan Planning Organization (MPO) is a regional agency responsible for transportation planning in metropolitan areas with populations over 50,000, as determined by the United States Census. MPOs are required for urbanized areas to ensure a coordinated and comprehensive approach to transportation planning and decision-making. Accordingly, MPOs play an instrumental role in the planning process.

MPOs have a governing board composed of representatives from local governments, transit agencies, and other stakeholders. They engage in a collaborative process involving public input, data analysis, and coordination with local constituents to ensure the development of planning deliverables that consider the needs of the local population.

MPOs play a crucial role in ensuring that transportation planning aligns with federal regulations, such as the transportation planning requirements of the Metropolitan Transportation Planning process outlined in 23 CFR 450. By coordinating transportation investments and addressing regional priorities, MPOs help enhance mobility, manage congestion, and support the overall development of the metropolitan area’s transportation system.

MPOs are formally designated by agreement between the Governor and local governments that together represent at least 75 percent of the affected population including the largest incorporated city, based on population. MPO boundaries are reviewed after each census to determine if existing boundaries meet the minimum statutory requirements for new and updated urbanized area(s).

An urbanized area with a population over 200,000, as defined by the Bureau of the Census and designated by the Secretary of the United States Department of Transportation (US DOT), is defined as a Transportation Management Area (TMA). MPOs located within a TMA are charged with developing additional planning products in recognition of the greater complexity of transportation challenges that are inherently present in large urban areas. The structure and roles of TMAs are more fully described in 23 CFR 450.310(d).

Delaware contains three MPOs within its boundaries: • Wilmington Area Planning Council (WILMAPCO) covering New Castle County, Delaware and Cecil County Maryland, • Dover/ Kent MPO covering Kent County, and • Salisbury/ Wicomico MPO covering portions of Sussex County.

Additionally, WILMAPCO is also considered a TMA.

2.1.1.2 Regional Transportation Planning Organizations (RTPOs) and Local Governments

Department Resources

Consultation Process for Non-Metropolitan Officials

Regional Transportation Planning Organizations (RTPOs) are comprised of multijurisdictional nonmetropolitan local officials or their designees who volunteer to provide input into the state planning process. RTPOs are established by a state’s Governor to enhance the planning, coordination, and implementation of the statewide planning program with an emphasis on addressing the needs of nonmetropolitan areas of a state. There are currently no RTPOs designated within the State of Delaware.

When an RTPO is not designated for a region, the state is required to consult directly with affected nonmetropolitan local officials to determine projects that may be of regional significance. Additionally, states are required under 23 CFR 450.210(b) to have a documented process(es) for cooperating with nonmetropolitan local officials to develop the deliverables described in Section 2.1.4.1 and [Chapter 2 - Project Origination and Planning#2.1.4.2 Statewide Transportation Improvement Program (STIP) |Section 2.1.4.2]. DelDOT’s consultation process is contained within its Consultation Process for Non-Metropolitan Officials document.

2.1.1.3 Public Transportation Operators Public transportation operators refer to a public entity or government-approved authority that participates in the continuing, cooperative, and comprehensive transportation planning process and is a recipient of federal funds to provide transportation to the public within a specific area or jurisdiction. These operators can include various types of organizations, such as transit agencies, transportation authorities, or private companies contracted to provide public transportation services. Public transportation operators typically manage and operate various modes of public transportation, including buses, trains, light rail, streetcars, and ferries. The primary objective of a public transportation operator is to provide safe, efficient, and accessible transportation options to the public, helping to reduce traffic congestion, improve air quality, and enhance mobility within communities. These organizations coordinate directly with MPOs to assist in the development of the MPOs required planning deliverables. DelDOT will coordinate with these organizations during the planning process to solicit input as needed. Public transportation operators within Delaware’s boundaries include Delaware Transit Corporation (DTC), Southeastern Pennsylvania Transportation Authority (SEPTA), and Cecil Transit.

2.1.1.4 Council on Transportation The Council on Transportation (COT) serves as an important advisory body, helping to shape transportation policies and plans in Delaware. The COT is responsible for advising the Governor, DelDOT, and other relevant agencies on matters related to transportation. The goal of the COT is to enhance transportation systems, promote economic growth, and improve the overall quality of life for residents and visitors in the State.

The COT is comprised of members appointed by the Governor. The duties of the COT are described in 29 Del. C § 8409 of the Delaware Code. The COT plays an instrumental role in the development and approval of the planning document deliverables described in [bookmark://_2.1.4.1_Long-Range_Transportation/ Section 2.1.4.1] and [bookmark://_2.1.4.2_Statewide_Transportation/ Section 2.1.4.2]. The specific tasks that the COT performs in the planning process include the following:

• Approve DelDOT’s performance-based criteria which is further described in [bookmark://_2.1.2_Performance-Based_Approach/ Section 2.1.2], in accordance with 29 Del. C § 8419 (1) and 29 Del. C § 8419 (2) of the Delaware Code.
• Hold public meetings in each county to inform the public and solicit comment on the proposed program contained in the federally required Statewide Transportation Improvement Program (STIP). The STIP is commonly referred to in Delaware as the Capital Transportation Plan (CTP).
• Make priority changes to the proposed CTP in an open meeting by documenting the reasons and justifications for the changes. This allowance is provided only after the written public comment period ends.
• Review and approve the Long-Range Transportation Plan, which is further described in [bookmark://_2.1.4.1_Long-Range_Transportation/ Section 2.1.4.1], in accordance with 29 Del. C § 8419 (3).
• Approve the CTP before it is sent to the full Delaware General Assembly for approval in accordance with 29 Del. C § 8409 (b)(3) of the Delaware Code.

2.2 Programs Generating DelDOT Projects

2.2.5 Traffic Engineering and Traffic Operations

DelDOT’s Traffic Engineering and Traffic Operations sections manage numerous strategic programs that identify operational and mobility deficiencies and potential safety related infrastructure improvement needs. Projects generated include, but are not limited to, the following types of improvements:

• New and reconstructed vehicular and pedestrian signals (including rectangular rapid flash beacons (RRFBs)),
• New and upgraded intersection control applications, such as roundabouts or all-way stops,
• Auxiliary lane improvements,
• Design and installation of integrated transport management system (ITMS) components, and
• New and upgraded roadway lighting and other related devices.

In addition to this broad program, the Traffic Engineering section also manages several other more specific programs which are further described in the following subsections. Design and construction of smaller projects such as signing, striping, traffic signals, and lighting are most often implemented within the Traffic Engineering section. Larger projects that are recommended via one or more of the programs below, such as roundabouts or additional turn lanes, are transferred to another section within DelDOT for design, most often one of the Project Development sections.

2.2.5.1 Traffic Calming Program

This program is managed by DelDOT Traffic’s Traffic Studies section and aims to enhance Delaware's roadways through strategies that maintain mobility and access while improving quality of life and preserving communities. The program employs a collaborative approach to performing studies that concern traffic volumes and travel speeds to provide for increased safety on Delaware's roadways, primarily those in residential subdivisions and other similar environments. Projects generated by this program include, but are not limited to, the following types of improvements:

• Roundabout location and designs,
• Pedestrian and bicycle facilities,
• Traffic calming devices,
• Traffic control device improvements, and
• Other alternative solutions.

2.2.5.2 MUTCD Compliance Program

Department Resources

Signage and Pavement Markings SOGR Summary

All traffic control devices along Delaware’s roads must conform to the requirements within the Delaware Manual on Uniform Traffic Control (DE MUTCD). This informal program identifies general traffic control device compliance issues and then programs work to make the needed remedial actions. The signage retroreflectivity program evaluates the need for statewide improvements of signage which is inclusive of new installations, maintenance of existing signs, and sign upgrades based on federal nighttime reflectivity requirements and DE MUTCD compliance. The pavement marking program evaluates the condition and need for pavement marking replacement and maintenance of raised pavement markers (RPMs) statewide. Both programs are managed by DelDOT’s Traffic Field Operations section. For more information, see the 2023 Line SOGR Summary_2022.pdf?cache=1697482402208 Signage and Pavement Markings SOGR Summary.

2.2.5.3 Highway Safety Improvement Program (HSIP)

DelDOT Traffic’s Safety Engineering section is tasked with maintaining a Highway Safety Improvement Program (HSIP) that meets the requirements within 23 CFR 924. The goal of the HSIP Program is to reduce fatalities and serious injuries resulting from crashes on all public roads. 23 CFR 924 specifically requires that states develop a data-driven Strategic Highway Safety Plan (SHSP), Railway-Highway Crossings Program, and program of highway safety improvement projects. The following subsections detail the individual programs within DelDOT’s HSIP Program which may generate DelDOT projects.

2.2.5.3.1 Hazard Elimination Program (HEP)

The Hazard Elimination Program (HEP) identifies high crash locations and makes recommendations to reduce the severity and frequency of the crashes. This is done through identifying locations with statistically significant crash patterns or rates, conducting engineering studies (such as road safety audits and other safety assessments or reviews), and developing potential solutions. The HEP Committee reviews completed studies and recommendations and then prioritizes identified projects for implementation that may have the greatest potential to reduce the State's roadway fatalities and serious injuries. Projects developed under this program typically include low-cost safety enhancements such as traffic control device upgrades (signs, pavement markings, etc.), traffic signal construction or upgrades, guardrail installation or enhancements, maintenance activities and other safety countermeasures that typically do not require full design or right-of-way acquisition for their completion. On occasion, the HEP will identify improvements beyond the typical low-cost safety improvements usually recommended which will require more substantial work be completed and will nominate projects to be included in DelDOT’s capital program.

2.2.5.3.2 High-Risk Rural Roads Program

The High-Risk Rural Roads Program (HRRRP) is a federally required program in accordance with 23 U.S.C. 148(g)(1). The goal of the HRRRP is to identify high crash locations and reduce the severity and frequency of crashes on rural collector and local roadways where the crash rate for fatalities and incapacitating injuries exceeds average crash rates. This is done through identifying locations and crash patterns, conducting engineering studies, and developing potential solutions. Improvement alternatives are developed that include low-cost safety improvements such as signing, pavement marking, intersection traffic control upgrades, guardrail upgrades, maintenance activities, and other low-cost type improvements that typically do not require full design or right-of-way acquisition.

2.2.5.3.3 Railway-Highway Crossing Safety (RCHP)

DelDOT maintains a Rail Crossing Safety Program in accordance with 23 CFR 924 which requires each state to develop a Railway-Highway Crossing (RHCP) Safety Program. As such, DelDOT has developed the Highway Rail Grade Crossing (HRGX) Safety Program. Under this program, DelDOT utilizes the Federal Railroad Administration's (FRA) GradeDec.NET (system for HRGX investment analysis) software to calculate benefit/cost ratios for all of Delaware's public highway-rail grade crossings. The benefit/cost ratios take into account the most recent 5-years of crash data, train speeds, the number of trains per day and average annual daily traffic (AADT) volume, in addition to several other factors. All public grade crossings statewide are ranked according to their benefit/cost ratios to identify candidate locations for safety upgrades. Selected candidate locations are then studied to determine if improvements are warranted based on field conditions, traffic data, and crash data. The HRGX Committee then reviews the recommendations for each candidate location and recommends those to move forward for implementation. Additional railroad programs outside of the RCHP are discussed in Section 2.2.5.4.

2.2.5.3.4 Systemic Safety Programs

The Traffic Safety Engineering section will periodically implement additional crash countermeasures through network screening and other systemic methods that are consistent with the goals and objectives of the Delaware SHSP to address the State’s safety needs. Examples include projects to install horizontal curve warning signs, high friction surface treatments, and median guardrails.

2.2.5.4 Railroad Program

DelDOT’s Railroad section is tasked with operating several railroad related programs that generate DelDOT projects. In addition to the programs described in the following subsections, the group also manages DelDOT’s railroad pavement and rehabilitation work which coordinates its identified locations and work with the Pavement and Rehabilitation Program described in Section 2.2.4.

2.2.5.4.1 Statewide Railroad Rideability Program

This program prioritizes existing highway and rail crossing locations for performing in-kind replacements or upgrades to the surface to address poor ride and hazardous conditions.

2.2.5.4.2 Rail Preservation Maintenance Program

The Rail Preservation Maintenance Program aims to sustain and upgrade the condition of the statewide rail network by prioritizing work locations. Preserving Delaware’s railroad network provides the State a competitive position by maintaining its current industrial and agricultural base, thereby retaining employers in the State. Additionally, maintaining the existing rail system provides alternate transportation choices to help reduce the use of single passenger vehicles on roadways.

2.2.5.4.3 Railroad Capital Improvements

DelDOT’s Railroad section performs engineering studies to identify deficient locations and to prioritize monetary investment.

2.2.5.5 Intelligent Transportation Management System (ITMS)

Department Resources

Integrated Transportation Management Program

This program funds many transportation operational efforts including facility upgrades at the Transportation Management Center (TMC), software, hardware, databases, integration efforts, staffing, etc. From a capital project standpoint, projects may include telecommunications systems (e.g., fiber optics lines), closed circuit television cameras, variable message signs, various traffic detection systems, etc. ITMS projects pursued under this program are to be incompliance with DelDOT’s regional plan in accordance with 23 CFR 940.9. DelDOT provides more information on this program on its Integrated Transportation Management Program website.

2.2.6 Division of Maintenance and Operations

DelDOT performs the majority of the work required to maintain its infrastructure in a state of good through routine maintenance operations that are funded out of DelDOT’s operating budget; however, on occasion, larger or more complex state of good repair work may generate a project requiring stricter adherence to the processes described within this manual. DelDOT’s Division of Maintenance and Operations will evaluate the scope of necessary state of good repair work and generate projects or work orders accordingly.

Additionally, DelDOT’s Division of Maintenance and Operations maintains several specific programs that may generate DelDOT projects.

2.2.6.1 Community Transportation Fund

DelDOT’s Community Transportation Fund (CTF) was established by the Bond Bill Committee to speed the process of making relatively small local improvements and also to put decision-making about priorities into the hands of each community through their elected representatives. CTF funding provides a fixed amount of funds annually to each State Senator and House Representative to be used as they and their constituents believe is best for transportation improvements within their district. Legislators may also scope and fund their own project ideas and have the option of banking a portion of their yearly CTF budget for up to 3-years in order to fund a larger transportation improvement. Funding expires after 3-years if it is not allocated to projects or estimates that are actively moving forward. Each project to be funded by CTF funds must meet the following three requirements:

1. Have a transportation component,
2. Be on public property or land dedicated to public use, and
3. Benefit more than one individual.

Projects are limited to items listed in Rule 12 of the Joint Committee on Capital Improvements Rules. Common projects funded through the CTF Program include repaving, correcting existing drainage deficiencies, curb replacements, sidewalk creation and repair, and traffic control devices. Each county has CTF representative that manages CTF construction projects. Projects can be administered by DelDOT staff or third parties.

2.2.6.2 Building Facilities

DelDOT maintains several building facilities within its asset inventory. The buildings DelDOT maintains can generally be classified as either an administrative building which provides office spaces for staff or buildings that facilitate operations. The majority of DelDOT’s buildings are maintained by DelDOT’s Division of Maintenance and Operations. The Division of Maintenance and Operations operates the Maintenance Facilities program. The mission of the Maintenance Facilities program is to perform capital projects to keep facilities in a state of good repair and increase energy efficiency. Under this program, asset condition is reviewed annually, and projects are selected based on a scoring formula factoring overall building condition, operational need, building category, and size.

2.2.6.3 Subdivision Street Pavement Management Program

This program was established to accelerate improvement and quality of the subdivision streets that DelDOT maintains. This program provides a dedicated improvement funding source to supplement legislator Community Transportation Funds. Locations are selected using a priority-based scoring system similarly to DelDOT’s Pavement Management Program discussed in Section 2.2.4.

2.2.7 Sustainability

DelDOT’s Division of Transportation Resilience and Sustainability operates several programs that have the capability to generate DelDOT projects. The following subsections describe the programs that the Division uses to plan and prioritize DelDOT’s resiliency and sustainability projects.

2.2.7.1 Resilience and Sustainability Program

The State of Delaware has the lowest mean level elevation (60 feet) in the nation and is particularly vulnerable to the effects of rising sea levels. Roadway flooding, as a result of coastal flooding inundation, storm surge and/or sunny day flooding from tide cycles and wind patterns, is the biggest threat to our transportation infrastructure. DelDOT’s Resilience and Sustainability Division plans and prioritizes a variety of transportation resilience and climate-related projects to address the vulnerabilities of the State’s transportation network by performing transportation infrastructure flooding mitigation work.

2.2.7.2 Carbon Reduction Program

DelDOT’s Division of Transportation Resilience and Sustainability coordinates with other state agencies, MPOs, and local governments under this program to identify and implement carbon reduction strategies and projects that will support the reduction of emissions from the transportation sector.

2.2.7.3 Electric Vehicle Charging Program

The Electric Vehicle Charging Program is overseen by DelDOT’s Division of Transportation Resilience and Sustainability. Working closely with DNREC, the program’s goal is to plan and construct electric vehicle charging infrastructure throughout the State to support the transition from internal combustion vehicles to zero emission vehicles.

2.2.8 Transit Systems (Delaware Transit Corporation)

The Delaware Transit Corporation (DTC) oversees the operation and planning of the State’s public transportation services. DTC is responsible for maintaining its existing public transportation infrastructure and for planning future services and needed facilities to provide the highest quality public transportation services that satisfy the needs of the customer and the community. Projects generated by DTC include, but are not limited to, minor maintenance to existing facilities, ITMS installation and upgrades, creation of new facilities ranging from small pads to large buildings.

DTC projects will commonly use Federal Transit Administration (FTA) funds and may have projects administered by the FTA as opposed to the FHWA. DTC projects administered by the FTA, may be required to slightly deviate from the project development process outlined within this manual accordingly.