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| Date: | 06/12/2025 |
| Title: | FY26 Unified Planning Work Program |
| Presented by: | Lora Mattox |
| Department: | Planning & Community Services |
| Presentation: | Yes |
RECOMMENDATION
Staff recommends that the TAC approve the 2026 Unified Planning Work Program (UPWP) and recommend it to the Yellowstone County Board of Planning, Yellowstone County Board of County Commissioners, and City Council for final local approval. Final review will be held by the Policy Coordinating Committee (PCC) on July 22, 2025.
BACKGROUND (Consistency with Adopted Plans and Policies, if applicable)
The Billings MPO (MPO) is presenting the draft 2026 Unified Planning Work Program (UPWP) for review and recommendation to the TAC and governing bodies. The UPWP is primarily for programming federal funds that Billings receives from the Federal Highway Administration (FHWA) for transportation planning and the Federal Transit Administration (FTA) for transit (MET) planning. These funds are passed through the Montana Department of Transportation (MDT). All transportation planning activities are included in the UPWP to represent a comprehensive document for the urban transportation planning program. This UPWP proposes planning activities for Federal Fiscal Year 2026, running from October 1, 2025, through September 30, 2026, and corresponds directly with the Planning Division’s annual work plan.
This year the total PL allocation is $1,395,824, which the Planning Division proposes providing local matching funds which are required at a certain percentage per element (a total breakdown of funding is located in Table I Funding Summary on page 52 of the UPWP). Table 3 on page 53 outlines the percentage breakdown per element (note that some transportation planning elements are 100% PL funded). The Planning Division matches these funds through the County-wide Planning Mill levy and fees generated through city and county planning applications and processes. This year, with the allocation for staffing and transportation planning activities, the MPO is proposing using up to $1,271,500 in PL funding. The local match is $783,500 (Planning). The un-programmed PL funds will not be lost to the MPO; un-programmed PL funds are carried over and re-allocated to the MPO in a two-year timeframe. This means in FY28, the MPO could receive an additional $124,324 in PL funding.
Projects identified for this year’s program include (detailed description of each project in the UPWP):
Under Element 300 – Transportation System Data – 100% PL
This year the total PL allocation is $1,395,824, which the Planning Division proposes providing local matching funds which are required at a certain percentage per element (a total breakdown of funding is located in Table I Funding Summary on page 52 of the UPWP). Table 3 on page 53 outlines the percentage breakdown per element (note that some transportation planning elements are 100% PL funded). The Planning Division matches these funds through the County-wide Planning Mill levy and fees generated through city and county planning applications and processes. This year, with the allocation for staffing and transportation planning activities, the MPO is proposing using up to $1,271,500 in PL funding. The local match is $783,500 (Planning). The un-programmed PL funds will not be lost to the MPO; un-programmed PL funds are carried over and re-allocated to the MPO in a two-year timeframe. This means in FY28, the MPO could receive an additional $124,324 in PL funding.
Projects identified for this year’s program include (detailed description of each project in the UPWP):
Under Element 300 – Transportation System Data – 100% PL
- Replacement and upgrade of traffic and trail counters as needed. The total cost budgeted for this is $15,000. Proposed by the MPO.
- Support the City of Billings Transportation Corridor Analysis Study by providing Travel Demand Modeling Support as needed. The total cost budgeted for this is $50,000. Proposed by the MPO.
- An update to the 2017 Household Travel Survey. This information assists in the development and upkeep of the Billings Travel Demand Model in preparation for the 2028 Long Range Transportation Plan Update. This data also is applicable as the City conducts the Transportation Corridor Analysis and as MET Transit continues to evaluate its routes and system. The total cost budgeted for this is $125,000. Proposed by the MPO.
- Feasibility and Planning Study – Alkali Creek Trail Connection. This project is proposed by the MPO. This project is identified in the FY26-30 CIP and the 2016 Bikeways and Trail Master Plan. Trail alignment and planning level design work is needed for this project to be prepared for a future Transportation Alternatives Program grant or other funding opportunity. The Parks Department supports completion of this final connection between the trail segments in this area to enable users to remain on a park trail through the area. The total cost budgeted for this project is $30,000.
- Feasibility and Planning Study – Coulson Park Connection. This project is proposed by the MPO. This project is identified in the FY26-30 CIP and the 2016 Bikeways and Trail Master Plan. Corridor analysis and planning level design work is needed for this project to be prepared for a future Transportation Alternatives Program grant or other funding opportunity. The Parks Department supports completion of this connection to provide access from the Downtown to Coulson Park as further park improvements are made to make Coulson more of a destination. The total cost budgeted for this project is $30,000.
STAKEHOLDERS
The local review of the UPWP involves public discussion sessions, work sessions, and regular business meetings of the City Council, Yellowstone County Board of County Commissioners, and Yellowstone County Board of Planning (Planning Board). The Planning Board also conducts a legally advertised public hearing at one of its meetings to review the UPWP. The public can provide comments or questions at any of these meetings, as well as formal public testimony at the Planning Board. Below is a list of outreach associated with the development of the FY26 UPWP:
· MPO staff discussed the initial development of the UPWP with the Technical Advisory Committee on May 8 and encouraged City and County Public Works to review potential transportation planning studies or projects that could be beneficial in advancing future capital projects.
· City Public Works/Engineering suggested two corridor studies that support future CIP projects (discussed above).
· May 21, MPO staff met with the County Public Works staff. Discussion included a discussion on the types of projects the MPO can assist with. One area of interest is conducting intersection studies at predetermined locations. The MPO also suggested that after the Billings Bypass is completed, an update to the Lockwood Transportation Study could be completed. No specific projects were identified at this meeting.
· MPO staff attended the June 4 Board of County Commissioners meeting to discuss the meeting with County Public Works, discuss proposed MPO projects and continue a dialogue with the Commissioners.
· On June 11th, MPO staff along with City Public Works and MET Transit met with the Legislative and Local Affairs Committee members of the City Council. This opportunity provided a discussion with council representatives on proposed projects and dialogue on council goals.
· Other scheduled meetings include a City Council Work session on June 16. If needed, additional work sessions will be scheduled to continue discussions. MDT has directed MPO staff to provide its final draft to MDT for review on August 1, a month earlier than has been required in past years of the UPWP process. Efforts to further discuss and review the UPWP program process with the County Commission and City Council has been increased this cycle, but staff will further anticipate the schedule per MDT in future years to provide more time for review and discussion.
· MPO staff discussed the initial development of the UPWP with the Technical Advisory Committee on May 8 and encouraged City and County Public Works to review potential transportation planning studies or projects that could be beneficial in advancing future capital projects.
· City Public Works/Engineering suggested two corridor studies that support future CIP projects (discussed above).
· May 21, MPO staff met with the County Public Works staff. Discussion included a discussion on the types of projects the MPO can assist with. One area of interest is conducting intersection studies at predetermined locations. The MPO also suggested that after the Billings Bypass is completed, an update to the Lockwood Transportation Study could be completed. No specific projects were identified at this meeting.
· MPO staff attended the June 4 Board of County Commissioners meeting to discuss the meeting with County Public Works, discuss proposed MPO projects and continue a dialogue with the Commissioners.
· On June 11th, MPO staff along with City Public Works and MET Transit met with the Legislative and Local Affairs Committee members of the City Council. This opportunity provided a discussion with council representatives on proposed projects and dialogue on council goals.
· Other scheduled meetings include a City Council Work session on June 16. If needed, additional work sessions will be scheduled to continue discussions. MDT has directed MPO staff to provide its final draft to MDT for review on August 1, a month earlier than has been required in past years of the UPWP process. Efforts to further discuss and review the UPWP program process with the County Commission and City Council has been increased this cycle, but staff will further anticipate the schedule per MDT in future years to provide more time for review and discussion.
ALTERNATIVES
TAC may:
1. Approve the UPWP as drafted and give a positive recommendation to the governing bodies.
2. Make amendments to the program document, approve it, and give a positive recommendation to the governing bodies.
3. Reject the program and give a negative recommendation to the governing bodies. Rejection of the UPWP would conflict with the operations of the Billings MPO, lead to a significant reduction in funding for planning activities in Billings and Yellowstone County, and affect staff, resources, and future transportation planning processes and programs.
1. Approve the UPWP as drafted and give a positive recommendation to the governing bodies.
2. Make amendments to the program document, approve it, and give a positive recommendation to the governing bodies.
3. Reject the program and give a negative recommendation to the governing bodies. Rejection of the UPWP would conflict with the operations of the Billings MPO, lead to a significant reduction in funding for planning activities in Billings and Yellowstone County, and affect staff, resources, and future transportation planning processes and programs.
FISCAL EFFECTS
Approval of the 2026 UPWP allows the City to access federal funds for transportation planning in the community. Federal and local funds are combined to provide most of the planning work done by the Planning Division for the City and the County. If the UPWP is not approved, there would be a significant loss of resources for community planning, and the community's ability to manage transportation planning projects and programs would be severely limited. The estimated breakdown of funding sources for the FY 2026 UPWP is as follows:
- $274,000 Planning Dept. Fee Revenue (City of Billings)
- $170,000 Planning Dept. Fee Revenue (Yellowstone County)
- $668,000 County-Wide Planning Levy
- $1,395,824 Federal Planning (PL) Allocation
Total Local and Federal Program Funding (UPWP): $2,507,824
- $274,000 Planning Dept. Fee Revenue (City of Billings)
- $170,000 Planning Dept. Fee Revenue (Yellowstone County)
- $668,000 County-Wide Planning Levy
- $1,395,824 Federal Planning (PL) Allocation
Total Local and Federal Program Funding (UPWP): $2,507,824
SUMMARY
Staff recommends the TAC approve the 2026 Unified Planning Work Program (UPWP) and forward it to the Yellowstone County Board of Planning, Yellowstone County Board of County Commissioners, and City Council for final approval. Approval of the UPWP grants access to federal funds for transportation planning, combining federal and local funds to support most planning work. Without approval, community planning resources would be significantly reduced, limiting the management of transportation projects.