Surface Transportation Project Delivery Program; Ohio Department of Transportation Audit Report |
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Nicole R. Nason
Federal Highway Administration
13 November 2019
[Federal Register Volume 84, Number 219 (Wednesday, November 13, 2019)]
[Notices]
[Pages 61677-61680]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2019-24654]
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DEPARTMENT OF TRANSPORTATION
Federal Highway Administration
[FHWA Docket No. FHWA-2019-001]
Surface Transportation Project Delivery Program; Ohio Department
of Transportation Audit Report
AGENCY: Federal Highway Administration (FHWA), U.S. Department of
Transportation (DOT).
ACTION: Notice.
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SUMMARY: The Moving Ahead for Progress in the 21st Century Act (MAP-21)
established the Surface Transportation Project Delivery Program that
allows a State to assume FHWA's environmental responsibilities for
environmental review, consultation, and compliance under the National
Environmental Policy Act (NEPA) for Federal highway projects. When a
State assumes these Federal responsibilities, the State becomes solely
responsible and liable for carrying out the responsibilities it has
assumed, in lieu of FHWA. This program mandates annual audits during
each of the first 4 years of State participation to ensure compliance
with program requirements. This notice makes available the final report
of Ohio Department of Transportation's (ODOT) third audit under the
program.
FOR FURTHER INFORMATION CONTACT: Mr. James G. Gavin, Office of Project
Development and Environmental Review, (202) 366-1473,
James.Gavin@dot.gov, Federal Highway Administration, U.S. Department of
Transportation, 1200 New Jersey Avenue SE, Washington, DC 20590, or Mr.
David Sett, Office of the Chief Counsel, (404) 562-3676,
david.sett@dot.gov, Federal Highway Administration, U.S. Department of
Transportation, 60 Forsyth Street 8M5, Atlanta, GA 30303. Office hours
are from 8:00 a.m. to 4:30 p.m., e.t., Monday through Friday, except
Federal holidays.
SUPPLEMENTARY INFORMATION:
Electronic Access
An electronic copy of this notice may be downloaded from the
specific docket page at www.regulations.gov.
Background
The Surface Transportation Project Delivery Program, codified at 23
U.S.C. 327, commonly known as the NEPA Assignment Program, allows a
State to assume FHWA's responsibilities for environmental review,
consultation, and compliance for Federal highway projects. When a State
assumes these Federal responsibilities, the State becomes solely liable
for carrying out the responsibilities it has assumed, in lieu of FHWA.
The ODOT published its application for assumption under the NEPA
Assignment Program on April 12, 2015, and made it available for public
comment for 30 days. After considering public comments, ODOT submitted
its application to FHWA on May 27, 2015. The application served as the
basis for developing the memorandum of understanding (MOU) that
identifies the responsibilities and obligations that ODOT would assume.
The FHWA published a notice of the draft MOU in the Federal Register on
October 15, 2015, at 80 FR 62153, with a 30-day comment period to
solicit the views of the public and Federal agencies. After the comment
period closed, FHWA and ODOT considered comments and executed the MOU.
Section 327(g) of Title 23, U.S.C., requires the Secretary to
conduct annual audits to ensure compliance with the MOU during each of
the first 4 years of State participation and, after the fourth year,
monitor compliance. The results of each audit must be made available
for public comment. The FHWA published a notice in the Federal Register
on March 8, 2018, at 84 FR 8560, soliciting public comment for 30 days,
pursuant to 23 U.S.C. 327(g). The FHWA received comments on the draft
report from the American Road and Transportation Builders Association
(ARTBA). The ARTBA's comments were supportive of the Surface
Transportation Project Delivery Program and did not relate specifically
to Audit 3. The team has considered these comments in finalizing this
audit report. This notice makes available the final report of ODOT's
third audit under the program.
Authority: Section 1313 of Public Law 112-141; Section 6005 of
Public Law 109-59; 23 U.S.C. 327; 23 CFR 773.
Nicole R. Nason,
Administrator, Federal Highway Administration.
Surface Transportation Project Delivery Program
FHWA Audit of the Ohio Department of Transportation
August 5, 2017, to August 10, 2018
Executive Summary
This is the third audit of the Ohio Department of Transportation's
(ODOT) assumption of National Environmental Policy Act (NEPA)
responsibilities, conducted by a team of Federal Highway Administration
(FHWA) staff (the team). The ODOT made the effective date of the
project-level NEPA and environmental review responsibilities it assumed
from FHWA on December 28, 2015, as specified in a memorandum of
understanding (MOU) signed on December 11, 2015, and amended on June 6,
2018. Within ODOT, the Division of Planning Office of Environmental
Services (OES) is responsible to manage and deliver the environmental
program. This audit examined ODOT's performance under the MOU regarding
responsibilities and obligations assigned therein.
Prior to the on-site visit, the team performed reviews of ODOT's
project NEPA approval documentation in EnviroNet (ODOT's official
electronic environmental document filing system). This audit consisted
of a review of a sample of 39 higher-risk project files out of 1,042
approved documents for Federal projects in ODOT's EnviroNet system with
an environmental approval date between April 1, 2017, and March 31,
2018. The team also reviewed ODOT's response to the pre-audit
information request (PAIR) and ODOT's Self-Assessment report. In
addition, the team reviewed ODOT's environmental processes, manuals,
and guidance; ODOT NEPA Quality Assurance and Quality Control (QA/QC)
Processes and Procedures; and the ODOT NEPA Assignment Training Plan
(collectively, ``ODOT procedures''). The team conducted an on-site
review during the week of August 6 to August 10, 2018. The team
conducted interviews with ODOT's central office staff on August 6,
2018, and with three district office staffs on August 7, 2018. The team
also interviewed staff with the Ohio Department of Natural Resources
(ODNR) on July 23, 2018, as part of the review.
Overall, the team found evidence that ODOT continues to make
reasonable progress in implementing the NEPA Assignment Program based
on Audit 1 and Audit 2 observations and demonstrated commitment to
success of the program. The team found zero non-compliance observations
but did note six general observations.
Background
The Surface Transportation Project Delivery Program (NEPA
Assignment Program) allows a State to assume FHWA's responsibilities
for review, consultation, and compliance with environmental laws for
Federal-aid highway projects. When a State assumes these
responsibilities, it becomes solely responsible and liable for carrying
out the responsibilities assumed, in lieu of FHWA.
The State of Ohio represented by ODOT completed the application
process and entered an MOU with
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FHWA on December 28, 2015, and amended on June 6, 2018. With this
agreement, ODOT assumed FHWA's project approval responsibilities under
NEPA and NEPA-related Federal environmental laws.
The FHWA is obligated to conduct four annual compliance audits of
ODOT's compliance with the provisions of the MOU. Audits serve as
FHWA's primary mechanism of determining ODOT's compliance with the MOU,
applicable Federal laws and policies, evaluating ODOT's progress toward
achieving the performance measures identified in the MOU, and
collecting information needed for the Secretary's annual report to
Congress.
The team provided a draft of this report to ODOT for its review and
the team considered the resulting comments in preparing the draft which
was made available for public review and comment. The FHWA considered
public comments on the draft in finalizing this report.
Scope and Methodology
The team conducted a careful examination of the ODOT NEPA
Assignment Program through a review of ODOT procedures and project
documentation, ODOT's PAIR response, and the self-assessment summary
report, as well as interviews with ODOT central office and district
environmental staff and resource agency staff. This review focuses on
the following six NEPA Assignment Program elements: (1) Program
management; (2) documentation and records management; (3) QA/QC; (4)
legal sufficiency; (5) performance measurement; and (6) training.
The PAIR consisted of 18 questions, based on the responsibilities
assigned to ODOT in the MOU. The team reviewed ODOT's response and
compared the responses to ODOT's written procedures. The team utilized
ODOT's responses to draft interview questions to clarify information in
ODOT's PAIR response.
The ODOT provided its NEPA Assignment Self-Assessment summary
report 30 days prior to the team's on-site review. The team considered
this summary report both in focusing on issues during the project file
reviews and in drafting interview questions. The report was compared
against the previous year's self-assessment report and the requirements
in the MOU to identify any trends.
Between March 16 and May 31, 2018, the team conducted a project
file review by identifying and reviewing 39 higher-risk project files
out of 1,042 approved documents of Federal-aid projects in ODOT's
EnviroNet system with an environmental approval date between April 1,
2017, and March 31, 2018. The selection of these projects was based on
a 100 percent sampling of d-listed Categorical Exclusions (CE), as well
as all Environmental Assessments (EA) and Environmental Impact
Statements. The team excluded from review those projects approved by
ODOT under 23 CFR 771.117(c) (c-listed CEs) based on the review
performance of those types of projects since ODOT assumed NEPA
responsibilities in 2015. The projects reviewed represented all
remaining NEPA classes of action available, including projects
representing 9 out of 12 ODOT Districts and the Ohio Rail Development
Commission.
In addition, the team reviewed ODOT's project file review
associated with its self-assessment to determine if ODOT evaluated its
projects in a similar fashion and using similar standards to that of
the Federal portion of this review. The ODOT reviewed projects within
the same sampling period as FHWA, however, ODOT samples included
Federal-aid and State-only funded projects. The ODOT conducts NEPA on
all projects regardless of funding source as they routinely convert
funding from State to Federal later via the Advanced Construction
process. The ODOT reviewed 248 projects, including 186 c-listed
projects, 61 d-listed projects, and 1 EA. The team determined the State
performed a rigorous annual QA review of its own projects.
During the on-site review week, the team conducted interviews with
21 ODOT staff members at the central office and three districts:
District 6 (Delaware); District 7 (Sydney); and District 10 (Marietta).
Interviewees included ODOT OES management and subject matter experts,
Office of Diversity and Inclusion (ODI), District Environmental
Coordinators (DEC), environmental staff, and public information
officers, representing a diverse range of expertise and experience.
These interviews focused on NEPA Assignment with emphasis on items
where additional information was deemed necessary to complete the
review.
The team conducted interviews 2 weeks prior to the on-site review
with personnel from the ODNR. The ODNR staff provided valuable insight
to the review team regarding ODOT's performance and relationships with
partner resource agencies.
The team identified gaps between the information from the desktop
review of ODOT procedures, PAIR, self-assessment, project file review,
and interviews. The team documented the results of its reviews and
interviews and consolidated the results into related topics or themes.
From these topics or themes, the team developed the review observations
and successful practices. The audit results are described below.
Overall, the team found evidence that ODOT continues to make
reasonable progress in implementing the NEPA Assignment Program based
on the Audit 1 and Audit 2 observations and demonstrated commitment to
success of the program. The team found zero non-compliance observations
but did note six general observations.
The FHWA team urges ODOT to monitor and make additional
improvements to the program for continued successes of the program.
Observations and Successful Practices
Program Management
Observation 1: Opportunities Exist To Strengthen Coordination Between
ODOT OES and ODOT ODI.
The team encourages ODOT to ensure that a proper level of
communication exists between OES and ODI in order to facilitate the
coordination of OES guidance and training with the ongoing ODOT-wide
Title VI program enhancements. The FHWA recognizes and is supportive of
the coordination and partnering efforts between OES and ODI undertaken
to date and stands ready to contribute to these efforts, where
appropriate.
Observation 2: There Are Inconsistencies in the Communication and
Management of ODOT Policy, Manuals, Procedures, and Guidance
The ODOT developed and implemented over 140 procedures to implement
NEPA Assignment, manage the program, and provide detailed instruction
for completion of environmental actions to document preparers and
reviewers. The ODOT shares these documents and other guidance with NEPA
practitioners on a quarterly basis via email, NEPA chats and DEC
Meetings, and via training. In addition, these documents are saved on a
local drive accessible by ODOT environmental staff and posted to ODOT's
website for consultants and local public agencies.
The FHWA found that policies, manuals, and other guidance documents
are readily available. However, interviews with district staff indicate
that opportunities exist to improve upon the communication of this
documentation in order to ensure more consistent implementation. In
addition, there are examples of training materials
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containing information that is not included in the related guidance
documents. In these cases, some environmental staff indicated they rely
on the information in the guidance while others indicated they rely on
OES instruction provided verbally or through email. Information
prepared for ODOT staff should exhibit consistency, regardless of the
form in which its presented.
Observation 3: Inconsistencies Remain in Public Involvement (PI)
Activities Specifically Regarding Outreach Activities to Underserved
and Protected Populations
The team notes and appreciates ongoing efforts by ODOT in response
to previous audit recommendations for improvement and enhancement of
the PI process. The team was provided examples of effective PI efforts
during the interviews with district staff. However, as demonstrated in
the project file reviews and the interviews, there remain areas of note
in application and consistency of public involvement efforts and
activities.
During FHWA's review, ODOT stated that the intent of its process
regarding Environmental Justice (EJ) is to identify any
disproportionately high and adverse impacts and disparate impacts on
the associated populations. Although OES staff indicated that they have
updated the guidance, developed new training, and provided forums for
instructive discussion for all environmental staff, consultants, and
Local Public Agencies, it is not clear how ODOT will ensure that
outreach efforts and activities are commensurate with the level of
impact or potential mitigation, as there is no discussion of outreach
efforts in the ODOT-OES' Underserved Populations Guidance. It is
unclear that the distinctions and specific requirements of protected
populations are fully discerned and distinguished from each other in
the guidance document, including thresholds and requirements. In
addition, interview responses within OES indicated a difference of
opinion in terms of what constituted outreach to underserved and
protected populations.
At the district level, ODOT District environmental staff indicated
that they had inconsistent information on how to determine if there
were protected populations and how to conduct the required outreach
activities, even if there were no disproportionately negative impacts.
However, OES is trusting the districts, on projects with a lower level
of NEPA classification, to ensure full and fair participation by
underserved and protected populations in public involvement, NEPA and
the transportation decisionmaking processes.
Documentation and Records Management
Observation 4: Opportunities Exist To Continue Improving Documentation
in the Areas of PI, EJ, and Environmental Commitments
In response to previous audits and self-assessments, ODOT updated
many procedures relating to the NEPA process to improve its processes
and meet Federal requirements. The updates included changes to ODOT's
internal documentation and filing guidelines and updates to EnviroNet.
The review team thinks these changes have positively impacted the
program since Audits 1 and 2.
The quality of documentation for projects is trending in a positive
direction since Audits 1 and 2, as approximately 50 percent of all
projects reviewed had zero deficiencies noted by the team. However,
although there were examples of high quality PI, EJ reviews,
development of environmental commitments, and documentation for some
projects, these same elements were lacking in others. For the projects
reviewed, 42 percent of substantive comments made by the team related
to EJ, 22 percent to PI, 17 percent to environmental commitments, 11
percent to QA/QC, and 8 percent to documentation. This demonstrates
inconsistencies in practice, which may indicate additional training,
guidance, and/or quality controls may be needed to improve consistency
in application of documentation statewide.
The team met with ODOT to discuss individual deficiencies noted by
both FHWA and ODOT OES during this audit. The ODOT evaluated these
deficiencies at OES and then communicated them individually with the
districts. The ODOT remains committed to improvements in documentation,
with plans to continue updates to EnviroNet and guidance, as needed,
and with the training required to deliver results.
Quality Assurance/Quality Control
Observation 5: There Are Variations in Awareness, Understanding, and
Implementation of QA/QC Process and Procedures
The inconsistencies and missing information noted in the
Documentation and Records Management section are an indication of
inconsistency in ODOT's QA/QC process. The team found inconsistencies
in awareness and use of peer reviews in the ODOT Districts, as well as
use of comments in EnviroNet. Selected ODOT OES and district
environmental staff said that they rely on the ODOT Central Office for
QC support. No training is provided exclusively for QA/QC.
Legal Sufficiency Review
The ODOT utilized its guidance for legal sufficiency to review one
Environmental Impact Statement Re-evaluation, one EA, and two
Individual Section 4(f) approvals.
Performance Measures
The development of Performance Measures is required in MOU Section
10.2. The ODOT has refined its Performance Measures to provide a better
overall indication of ODOT's execution of its responsibilities as
assigned by the MOU. The team found evidence that the results obtained
through the Performance Measures are beginning to provide actionable
feedback, allowing ODOT to make appropriate changes as it manages its
environmental program.
Training Program
During the previous audits, it was noted that ODOT has a robust
environmental training program and provides adequate budget and time
for staff to access a variety of internal and external training. To add
to the training program and plan, ODOT has complemented its
traditional, instructor-based training courses, quarterly DEC meetings,
and monthly NEPA chats with the development of several online courses.
During the audit, ODOT reported that 10 online courses are anticipated
to be available in August 2018, with an additional 19 online courses
anticipated to be developed within the year. As of October 2018, it is
not evident that these courses were yet deployed.
Observation 6: Opportunities Exist To Expand Required and Continuous
Training to Additional Staff and Develop Additional Instructor-Led or
Online Training in NEPA-Related Subject Areas
Also, during the previous audit, it was noted ODOT's training plan
states that all ODOT environmental staff (both central and district
offices) and environmental consultants are required to take the pre-
qualification training courses. The ODOT should consider extending this
requirement to NEPA project managers and public involvement officers.
Extending the training to additional staff may improve public outreach
efforts and overall program delivery. The ODOT should focus on training
in NEPA and NEPA-
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related subject areas such as Limited English Proficiency and Public
Involvement. The FHWA encourages ODOT to include specific EJ training
opportunities in its training plan, such as the Web-based course
currently under development.
Finalization of Report
The FHWA received one response to the Federal Register Notice
during the public comment period for the draft report. This response,
from the American Road and Transportation Builders Association, was
supportive of the Surface Transportation Delivery Program and did not
relate specifically to Audit 3. This final report is substantively the
same as the draft version.
[FR Doc. 2019-24654 Filed 11-12-19; 8:45 am]
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