1.
City Council Work Session
- Meeting Date:
- 11/16/2026
- TITLE
- Kickoff of the 2028 Long Range Transportation Plan Update
- PRESENTED BY:
- Lora Mattox
- Department:
- Planning & Community Services
Presentation:
Yes
Legal Review:
No
Project Number:
N/A
RECOMMENDATION
Staff recommends the City Council receive the kickoff presentation and provide early direction on the transportation issues, growth considerations and investment priorities that staff should evaluate in the 2028 Long Range Transportation Plan (LRTP) Update. Staff recommends treating this kickoff as an informational discussion. Approval of specific projects or adoption of the plan will occur later in the 2028 LRTP update process.
Staff is also seeking Mayor and/or City Council member participation on the LRTP Steering Committee to provide ongoing input and help guide development of the plan throughout the process. MPO staff anticipates the Steering Committee to meet approximately once a month during the estimated 18-month-long process. Staff would like the Mayor and Council to designate one or two of their members to serve on the LRTP Steering Committee.
Staff is also seeking Mayor and/or City Council member participation on the LRTP Steering Committee to provide ongoing input and help guide development of the plan throughout the process. MPO staff anticipates the Steering Committee to meet approximately once a month during the estimated 18-month-long process. Staff would like the Mayor and Council to designate one or two of their members to serve on the LRTP Steering Committee.
EXECUTIVE SUMMARY
The Billings Metropolitan Planning Organization (MPO) is beginning the 2028 Long Range Transportation Plan (LRTP) Update, which will guide regional transportation planning and investment for at least the next 20 years. The update will evaluate current and future transportation needs, anticipated growth, potential improvements and available funding for roadways, transit, freight, walking and bicycling.
The process will include technical analysis, travel demand modeling, public and stakeholder engagement, and governing-body input, with adoption anticipated in May/June 2028. This kickoff requests early direction on transportation issues, growth considerations and investment priorities; no specific projects or construction funding are being presented at this stage.
The current adopted Billings MPO LRTP can be viewed here: https://billingsmt.gov/3262
The process will include technical analysis, travel demand modeling, public and stakeholder engagement, and governing-body input, with adoption anticipated in May/June 2028. This kickoff requests early direction on transportation issues, growth considerations and investment priorities; no specific projects or construction funding are being presented at this stage.
The current adopted Billings MPO LRTP can be viewed here: https://billingsmt.gov/3262
BACKGROUND (Consistency with Adopted Plans and Policies, if applicable)
The LRTP provides the regional framework for transportation planning and investment over a horizon of at least 20 years. It addresses roadways, transit, freight, walking and bicycling within the Billings metropolitan planning area. Billings updates the plan every five years per Federal Highway Administration requirements to reflect changing conditions, anticipated growth and available resources.
The 2028 update will build on the 2023 LRTP and the amendments PCC adopted in March 2026 that refined the project list, improved fiscal constraint, updated the planning area and introduced interactive project mapping. The update will help identify transportation needs, evaluate potential solutions and establish a financially responsible roadmap for future investment. LRTP priorities inform the Transportation Improvement Program, local Capital Improvement Programs and the Statewide Transportation Improvement Program. Project advancement also requires funding and implementation decisions.
Proposed Scope of Work
Staff will assess existing transportation conditions, review growth and land-use assumptions, identify system needs and evaluate possible improvements. Analysis will draw on crash data, traffic counts, transit and freight information, bicycle and pedestrian data, Billings 2045 and associated neighborhood plans, community input and funding forecasts.
The MPO will update its TransCAD travel demand model with current roadway, population, employment and land-use information. Calibration and validation will help assess model performance against observed conditions. Future scenarios will help evaluate how growth and potential transportation improvements could affect travel patterns and nearby corridors.
Five proposed goal areas will guide development of objectives, performance measures and targets:
Project Evaluation and Funding
Potential evaluation areas include safety, mobility, multimodal connectivity, growth and land use, accessibility, economic development and freight, resiliency, public input, cost and funding feasibility. Staff will seek policy input before finalizing criteria or weighting. Technical findings will inform governing-body decisions about priorities and tradeoffs.
The project list will distinguish committed projects in current programs, recommended improvements within reasonably anticipated resources, and illustrative improvements that need additional funding. An identified need or inclusion in the LRTP does not guarantee project funding. Planning expenditures will be addressed through the MPO work program and applicable budget and contracting processes.
Engagement and Governing Body Participation
Proposed engagement methods include an interactive map, community survey, events, stakeholder meetings and agency coordination. Staff will report what participants identified and how their input informed the plan. Governing-body discussions will occur at key stages to review needs, possible solutions, investment priorities and the draft plan before final consideration through the MPO process.
Anticipated Schedule
Activities may overlap, and the schedule may be refined as work progresses.
Requested Governing Body Input
Staff seeks direction on regional issues such as corridor safety, major network connections, access to growing areas, system preservation, transit access, non-motorized access and connectivity, and freight movement. These examples are topics for evaluation, rather than predetermined project recommendations.
Discussion questions include:
The 2028 update will build on the 2023 LRTP and the amendments PCC adopted in March 2026 that refined the project list, improved fiscal constraint, updated the planning area and introduced interactive project mapping. The update will help identify transportation needs, evaluate potential solutions and establish a financially responsible roadmap for future investment. LRTP priorities inform the Transportation Improvement Program, local Capital Improvement Programs and the Statewide Transportation Improvement Program. Project advancement also requires funding and implementation decisions.
Proposed Scope of Work
Staff will assess existing transportation conditions, review growth and land-use assumptions, identify system needs and evaluate possible improvements. Analysis will draw on crash data, traffic counts, transit and freight information, bicycle and pedestrian data, Billings 2045 and associated neighborhood plans, community input and funding forecasts.
The MPO will update its TransCAD travel demand model with current roadway, population, employment and land-use information. Calibration and validation will help assess model performance against observed conditions. Future scenarios will help evaluate how growth and potential transportation improvements could affect travel patterns and nearby corridors.
Five proposed goal areas will guide development of objectives, performance measures and targets:
- Safety
- Resiliency
- Mobility
- Accessibility and Transportation Options
- Economic Vitality
Project Evaluation and Funding
Potential evaluation areas include safety, mobility, multimodal connectivity, growth and land use, accessibility, economic development and freight, resiliency, public input, cost and funding feasibility. Staff will seek policy input before finalizing criteria or weighting. Technical findings will inform governing-body decisions about priorities and tradeoffs.
The project list will distinguish committed projects in current programs, recommended improvements within reasonably anticipated resources, and illustrative improvements that need additional funding. An identified need or inclusion in the LRTP does not guarantee project funding. Planning expenditures will be addressed through the MPO work program and applicable budget and contracting processes.
Engagement and Governing Body Participation
Proposed engagement methods include an interactive map, community survey, events, stakeholder meetings and agency coordination. Staff will report what participants identified and how their input informed the plan. Governing-body discussions will occur at key stages to review needs, possible solutions, investment priorities and the draft plan before final consideration through the MPO process.
Anticipated Schedule
| Period | Primary activities |
| Fall 2026 | Kickoff and early outreach |
| 2027 | Existing conditions, model update and needs analysis |
| Late 2027 | Alternatives and project evaluation |
| Early 2028 | Recommendations and financial analysis |
| Spring 2028 | Draft plan and public review |
| May/June 2028 | Target adoption |
Activities may overlap, and the schedule may be refined as work progresses.
Requested Governing Body Input
Staff seeks direction on regional issues such as corridor safety, major network connections, access to growing areas, system preservation, transit access, non-motorized access and connectivity, and freight movement. These examples are topics for evaluation, rather than predetermined project recommendations.
Discussion questions include:
- What transportation issues should this plan make sure we address?
- Where do you see the Billings area changing most over the next 20 years?
- What information would help you make future transportation investment decisions?
FISCAL EFFECTS
The kickoff requests no additional appropriation or commitment of funding to complete. Anticipated planning costs include MPO staff time, consultant assistance for the travel demand model and technical analysis, data collection, and public engagement. Staff is using federal metropolitan planning (PL) funds as programmed through the current PCC approved Unified Planning Work Program (UPWP).
STAKEHOLDERS
Anticipated agency stakeholders include City and County Public Works and planning staff, MDT, MET Transit, Billings Airport, FHWA and FTA. These partners will help coordinate transportation data, growth assumptions, project needs, funding information and implementation responsibilities. Governing bodies and MPO committees will provide policy direction and review findings and recommendations.
Community stakeholders include residents throughout the planning area, neighborhood groups, schools and colleges, employers, businesses, freight operators, emergency services, and bicycle and pedestrian interests. Outreach will include transit riders, people with disabilities, older adults, students and residents who do not drive, so the plan reflects different transportation needs and barriers.
Proposed engagement methods include an interactive map, community survey, events, stakeholder meetings and agency coordination. Staff will report what participants identified and how their input informed the plan. Governing-body discussions will occur at key stages to review needs, possible solutions, investment priorities and the draft plan before final consideration through the MPO process.
Community stakeholders include residents throughout the planning area, neighborhood groups, schools and colleges, employers, businesses, freight operators, emergency services, and bicycle and pedestrian interests. Outreach will include transit riders, people with disabilities, older adults, students and residents who do not drive, so the plan reflects different transportation needs and barriers.
Proposed engagement methods include an interactive map, community survey, events, stakeholder meetings and agency coordination. Staff will report what participants identified and how their input informed the plan. Governing-body discussions will occur at key stages to review needs, possible solutions, investment priorities and the draft plan before final consideration through the MPO process.
ALTERNATIVES
N/A