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Item 1.J.
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| City Council Regular | |
| Date: | 07/14/2025 |
| Title: | FY26 Unified Planning Work Program |
| Presented by: | Lora Mattox |
| Department: | Planning & Community Services |
| Presentation: | No |
| Legal Review: | Not Applicable |
| Project Number: | N/A |
RECOMMENDATION
Staff recommends the City Council forward a recommendation of approval of the FY26 Unified Planning Work Program (UPWP) to the Policy Coordinating Committee (PCC). The PCC is scheduled to take final action on the UPWP at its meeting on July 22, 2025.
BACKGROUND (Consistency with Adopted Plans and Policies, if applicable)
The Billings Metropolitan Planning Organization (MPO) is presenting the draft 2026 UPWP for review and recommendation to the City Council 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 to use up to $1,143,600 in PL funding. The local match is $758,400 (Planning). The unprogrammed PL funds will not be lost to the MPO; unprogrammed 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 $204,224 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 to use up to $1,143,600 in PL funding. The local match is $758,400 (Planning). The unprogrammed PL funds will not be lost to the MPO; unprogrammed 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 $204,224 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 is also applicable as the City conducts the Transportation Corridor Analysis and as MET Transit continues to evaluate its routes and system. The total budget for this is $150,000. 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 the 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 budgeted cost for this project is $20,000.
- Feasibility and Planning Study -- Downtown to Billings Heights Non-Motorized 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 the completion of this connection to provide access from the Downtown to Coulson Park as further park improvements are being made to make Coulson more of a destination. The total budgeted cost for this project is $20,000.
- Feasibility and Planning Study -- Aronson Avenue to Annandale Road Trail Connection. This project is proposed by the Billings City Council. This project is identified in 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 the completion of this connection to provide access from Aronson Avenue through several neighborhoods located in the Billings Heights up to Annandale Road, including an elementary, middle and high school. The total budgeted cost for this project is $40,000.
- Additional Evaluation and Public Outreach -- Safe Routes to School - St. Francis Catholic School/Poly Drive Elementary and Medicine Crow Middle School. This project is proposed by the Billings City Council. These projects are identified in the Phase I and Phase II Safe Routes to School Studies completed by the MPO. Both of these projects were identified needing additional evaluation and public outreach to determine feasibility and local support. The total cost budgeted for this project is $75,000.
- Transportation Corridor Analysis Public Outreach (updated since Council Work Session) -- The MPO is actively participating in Phase II of the Transportation Corridor Analysis project. Initiated by Engineering, this project will engage the community in shaping how the transportation network should function and its appearance. To meet this goal, Engineering launched a two-phase project. Phase I, led by Engineering, involves extensive public outreach using a variety of engagement tools and opportunities. Phase II, led by the MPO, will build upon the first phase by validating its findings and incorporating additional engagement efforts, including visual preference surveys, open houses, corridor pop-up events, and stakeholder group meetings. The total cost budgeted for this project is $80,000.
STAKEHOLDERS
The local review of the UPWP involved 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, the designated MPO, conducted a public hearing at the June 24th meeting. No public testimony was provided.
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. Meetings and discussions that occurred at the time of this memo, included:
· 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 discussed potential projects with the MPO and supports the additional Safe Routes to School analysis and public outreach (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 Council 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.
· On June 12th, the Technical Advisory Committee met and reviewed proposed projects submitted by the MPO, City and County. Based on this information, the TAC recommended the projects identified in this memo for inclusion.
· MPO staff attended the June 16 City Council Work Session and provided information on the UPWP and proposed projects. The City Council supports the above projects set forth by the MPO.
· On June 24th, the Planning Board received a presentation on the FY26 UPWP and conducted a public hearing to collect public comment. No public comment was received.
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. Meetings and discussions that occurred at the time of this memo, included:
· 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 discussed potential projects with the MPO and supports the additional Safe Routes to School analysis and public outreach (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 Council 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.
· On June 12th, the Technical Advisory Committee met and reviewed proposed projects submitted by the MPO, City and County. Based on this information, the TAC recommended the projects identified in this memo for inclusion.
· MPO staff attended the June 16 City Council Work Session and provided information on the UPWP and proposed projects. The City Council supports the above projects set forth by the MPO.
· On June 24th, the Planning Board received a presentation on the FY26 UPWP and conducted a public hearing to collect public comment. No public comment was received.
ALTERNATIVES
The City Council may:
· Forward a recommendation of approval of the FY26 UPWP to the Policy Coordinating Committee which will allow the continuation of federal transportation planning funding to the MPO, or;
· Not forward a recommendation of approval of the FY26 UPWP to the Policy Coordinating Committee. Not forwarding a positive recommendation could jeopardize continued federal transportation planning funding to the MPO.
· Forward a recommendation of approval of the FY26 UPWP to the Policy Coordinating Committee which will allow the continuation of federal transportation planning funding to the MPO, or;
· Not forward a recommendation of approval of the FY26 UPWP to the Policy Coordinating Committee. Not forwarding a positive recommendation could jeopardize continued federal transportation planning funding to the MPO.
FISCAL EFFECTS
Approval of the 2026 UPWP allows the MPO 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 that the Planning Board forward a recommendation of approval of the FY26 UPWP to the PCC. 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.