Steps to funding multi-use trails.

The Iron Horse Trail, a multi-use trail in San Francisco's East Bay, is a converted railroad right-of-way that was used by more than 400,000 people in 1991 and is projected to serve well over one million users annually when it is completed. The funding for this 32-mile multi-use trail comes from more than a dozen sources. "One of the largest cooperative efforts of its kind," says Steve Fiala, trails specialist for the East Bay Regional Park District.

Since the line was abandoned by the Southern Pacific Railroad in 1978, public support by trail advocates has led to steady funding and completion of segments, crossings and other improvements. "Funding sources have included utility companies who have used the corridor for pipelines, local sources such as the Transportation Development Act and Measure C funds, redevelopment moneys, donations and mitigation funding from a nearby federal interstate project," reports Fiala.

The Iron Horse Trail currently has applications in for Intermodal Surface Transportation Efficiency Act (ISTEA) funding, which will help complete the regional system, connecting two counties and nine cities. One of the keys to successful ISTEA funding will be to highlight the transportation (rather than recreation) aspects of the corridor to meet ISTEA congestion management and air quality goals. "Trails like the Iron Home system, while serving many recreators, need to get credit for linking schools, transit stations and employment centers. Even recreation trips, if they get people out of their cars, help to reduce traffic in the community," says Fiala.

Call them what you will, multi-use trails, bike paths, and linear parks, are sprouting up throughout California and enjoying tremendous popularity. One of the reasons they are getting built is the availability of funding under the new Intermodal Surface Transportation Efficiency Act. Trail managers who have entered into this funding arena can quickly become overwhelmed by the number of programs, program objectives and funding requirements.

What are the ISTEA Funding Programs?

There are six basic funding sources under ISTEA, each with its own requirements and objectives.

* National Highway System Funds (Section 1006). For any bicycle or pedestrian facilities that parallels any part of the national highway system (other than the interstate system). Facilities must serve transportation more than recreation.

* Surface Transportation Program (STP) Funds (Section 1007). Funded through a state's Transportation Enhancement Activities (TEA) program, the money may be used for bicycle or pedestrian construction projects, acquiring abandoned railroad corridors, or support items such as brochures, public service announcements and route maps. Facilities must be principally transportation rather than recreation serving. Federal share: 88.5 percent. A total of $23.9 billion available nationally until 1997.

* Congestion Mitigation and Air Quality Improvement (CMAQ) Program Funds. Essentially the same as the STP funding described above, except that the project must be in a non-attainment area according to the 1990 Clean Air Act. Federal share: 88.5 percent. A total of $6 billion available until 1997.

* Federal Lands Highway Funds (Section 1032). Funding for pedestrian or bicycle facilities in conjunction with roads, highways and parkways at the discretion of the appropriate state. agency. Principally for transportation rather than recreation projects. Federal share: 100 percent. A total of $20.8 billion available nationally.

* Scenic Byways Program Funds (Section 1047). For bicycle or pedestrian facilities along scenic highways. Federal share: 80 percent. National appropriation is $10 million annually.

* National Recreational Trails Fund (Section 1302). Funding for recreational trails to benefit bicyclists, pedestrians and other non-motorized users. Projects must be consistent with a Statewide Comprehensive Outdoor Recreation Plan. Federal share: 100 percent until 1994. National appropriation was $7.5 million for 1993.

How Appropriate are These for Multi-Use Trails?

Multi-use trails by definition are facilities designed to be used by both pedestrians and bicyclists, and possibly others such as in-line skaters and equestrians. As such a multi-use trail project would qualify for all of the six programs listed above. The issue of serving transportation versus recreation does focus funding on certain types of multi-use trails. For example, an unpaved fire road could be considered a multi-use trail, but probably not transportation-serving. In order to meet ISTEA criteria, the trail should be located in a suburban or urban environment; provide a reasonably direct connection for bicyclists or pedestrians to schools, employment centers, or transit transfer stations; and serve as an alternative means to the automobile.

These multi-use trails may in fact be located in parklands and enjoy high recreation use on weekends, but the development program should be geared to identifying and quantifying commuters, whether they be school children or adults. In reviewing your system, identify the number of destinations served within a few blocks, the access from residential areas and the directness which might attract pedestrians and bicyclists.

A major caveat to the requirement for directness would be the absence of a safe route for pedestrians and bicyclists along existing roadways in the corridor. For example, a multi-use trail along a creek may not be direct, but the adjacent roadway carries heavy traffic and has a constrained right of way, making it unsafe for pedestrians and bicyclists to use.

Putting Together a Funding Strategy

A funding strategy is required for most projects to maximize the chances for success, and minimize delays in implementation. The strategy will use local and state funding sources to leverage federal funding from sources such as ISTEA, which generally require a local or state match. A funding strategy includes taking the following steps.

* Talk to Other Departments. Coming from the Department of Transportation and being primarily transportation serving, ISTEA funding is typically directed to public works departments and occasionally transit or planning departments. A parks and recreation department may apply for funding, but it must have a city or county as a co-sponson By talking with other departments, you can work out a coordinated strategy as to which department will sponsor, implement, and eventually operate and maintain the project. I highly recommend that you form an inter-agency technical advisory committee from all appropriate departments to oversee the process.

* Develop a Multi-Use Trail or Bikeway Plan. ISTEA funding is appropriated to each state and in turn to each metropolitan planning organization (MPO). While funding requirements are set at the federal level, regional and state priorities become important because the MPO ranks each proposal on a competitive basis. One of the most common regional and state requirements is a multi-use trail or bikeway master plan, which identifies needs, sets priorities and costs, and is consistent with the regional transportation plan and local general plan. The more complete and compelling the master plan, the better the chances of receiving funding.

* Show Local Commitment and Involvement Most funding programs look for signs of local commitment in the form of budget expenditures (11.5 to 20 percent of the project cost), completion of a master plan and existing trail conditions. Local involvement in the form of letters of support from schools, agencies, cities, companies and individuals, along with formation of a public advisory committee and approval of the plan by the policy board will show that the application enjoys widespread support.

* Focus on the Highest Priority Segments. The most important outcome of a trail or bikeway master plan is the recommended phasing and priorities for the system, along with development costs. This process shows the MPO and state that you tried to focus on those improvements serving the greatest need with "real" implementation costs and ability to relieve congestion or help meet federal air quality standards.

* Identify and Address Obstacles. The plan should identify obstacles such as the need for property acquisition or expanded bridges or roadways, and find a solution which is acceptable and practical. An environmental assessment should be completed according to the National Environmental Protection Act (NEPA) and your local environmental laws,

* Identify Appropriate Funding Sources. Review the high-priority project to determine which set of local, state, and federal funding programs are appropriate to apply for. Try to quantify the number of bicycle and pedestrian commuters who will use the system, the safety benefits and other items which are listed under each program.

* Talk with Your MPO. It is worth a visit to the MPO office that makes the initial ranking to understand how you can strengthen your application. Be sure to obtain a list of ranking criteria, and ask which of the criteria are most important. Finally, be sure to inform local politicians who support the project to lobby the MPO.

Keys to Success

Like the Iron Horse Trail in the East Bay, most multi-use trail projects will qualify for one or more of the ISTEA funding programs currently available. Key ingredients to success are interagency coordination, completing a master plan, building local support, developing a priority list, identifying and overcoming obstacles, and communicating with your local MPO. With this effort, local and state resources may be expanded considerably and allow you to construct a successful multi-use trail system in your community.