Assessing communicative rationality as a transportation planning paradigm

Communicative rationality offers a new paradigm for transportation planning. Drawing on the literature and lessons from transportation planning practice, this paper describes the characteristics of a “communicative” form of transportation planning and compares them with conventional practices. A communicative rationality paradigm would place language and discourse at the core of transportation planning. The paper argues that it would lead to greater attention to desired transportation ends (goals), better integration of means and ends, new forms of participation and learning, and enhanced deliberative capacity. The paper explains the implications of this paradigm for the role of the transportation planner, the purpose of planning, the planning process, communicative practices, problem framing, and the nature of planning analysis. The paper concludes with an assessment of communicative rationality's ability to promote more effective transportation planning. It seeks to create a dialogue that will support the investigation of new transportation planning processes. This revised version was published online in June 2006 with corrections to the Cover Date.     

Citizen involvement in the transportation planning process: What is and what ought to be

Public involvement in the transportation planning process is an effort to ensure that citizens have a direct voice in public decision‐making. Through shared goals, such involvement enriches the planning, implementation, operation and management process. Various strategies of involving the public in the planning process have been tried in the past thirty years, but the overall effort has been lumpy and at times disappointing. In the last few years some forms of communicative action have been applied, following its appearance in current literature, but we still have a long way to go. This paper has four main objectives. First, it surveys the citizen involvement effort as it is practiced today and the problems it faces. Second, it describes teleogenic systems that are particularly suited for tackling conflictual problems. Thirdly, it presents the interplay of virtuous and vicious cycles in reinforcing or retarding collective decision making. And lastly, the process of harvesting the potential of citizen groups in collective decision‐making through critical systems thinking is described.     

Public/private-sector cooperation in urban transportation: Lessons from ridesharing experiences in Connecticut

An important characteristic of urban transportation policy and planning today is the increasing role that the private sector is playing in identifying and implementing transportation projects. For example, a recent examination of the possible forms of such involvement found that there were four major categories of action that could be used to classify recent private-sector efforts in urban transportation: (1) aid to and/or provision of transportation services; (2) formation of advocacy or advisory groups whose purpose is to influence public policy; (3) sponsorship of transportation studies; and (4) provision of management assistance to public agencies (Gordon, 1982). In many of these efforts, the successful implementation of a project or program required close cooperation between public and private-sector officials. The purpose of this paper is to examine the characteristics of this interaction and explore the implications for transportation planning and policy.Examples of public/private-sector interaction in two Connecticut cities, Hartford and Stamford, are used to illustrate the characteristics of successful transportation program implementation. Although the examples are limited to two cities, and are mainly concerned with one major category of action (ridesharing), the characteristics of the process used and of the results can be applied to other situations where public/privatesector interaction is desired.     

The politics of collective public participation in transportation decision-making

Citizen involvement in transportation planning is typically modeled on a liberal democracy in which individuals express their preferences about a project. In this paper we present an analysis based on interviews with stakeholders whose involvement was grounded in a complementary model of public participation, one in which an organized community used collective action (instead of only individual expression), and worked both within and outside of the formal public involvement process to influence the design of an arterial highway in their neighborhood. This case reflects a commonplace context for public participation: residents opposing a highway expansion and the negative effects of heavy traffic in neighborhoods. The problem presented in this case is that the process for citizen involvement was not designed to fully utilize the community’s collective capacity. Three aspects of collective action—representation, the ability to shape a policy agenda, and methods of engagement—were contested in the public participation process. We argue that these conflicts around collective action in the public participation process exposed its “one-way communication,” and enabled a different kind of political process in which neighbors’ organizing was powerful and influenced decisions.     

Things planners believe in,and things they deny

The paper examines the economic theory of consumer behavior from the Modern Psychoanalytic point of view with a metaphor of (transport) planning as a backdrop. It is claimed that the utility maximization principle of economic theory, no matter how broadly interpreted, does not envelop the motivation of human behavior and that the economic explanation of the aims of human behavior, which disregards the "dark side" of man, will result in narrowly conceived plans and policies.The application of economic theory, and other social sciences, to public policy has led to disjointedness of data collection, method of analysis, and planning and implementation. This, combined with a tautological behavioral theory, has made the current planning and public policy procedures self-verifying, and issues an invitation for a new theoretical approach which is comprehensive, does not ignore complexity and the large "error term", and appreciates the unity of data collection, method of investigation, and process of implementation.It is argued that unsatisfactory performance of the transport system, large errors inherent in data and models, the inability of extant transportation planning and policy to address key issues successfully, the environmental problem, and the value of the individual all call for new kinds of skills from the planners and policy makers.Freud's dualistic formulation of instinctual drives -- the life and death instincts -- is used as the new framework of explanation. This theory is seen to offer a convincing, more realistic and deeper understanding of the forces motivating human behavior, and one which is more in accordance with observable facts. If applied, the theory will lead to significantly different planning processes and to a profoundly different approach to public policy.     

Data display techniques for transportation analysis and planning: an investigation of three computer‐produced graphics

Graphics are a powerful but often costly means of communication. Computer‐drawn graphics offer a new and relatively inexpensive way to assist the communication of complex technical information to both planners and non‐technical people whose full potential is now beginning to be realized. This paper discusses the utility of graphics and introduces three computer‐drawn graphic techniques which may be useful, both for analysis and presentation of results, in the transportation planning process. CENVUE(S) produces a three‐dimensional, perspective‐view map, on which virtually any type of transportation data or performance indicator can be displayed. VAP is designed to display origin‐destination travel patterns in any region. TDN transforms a physical‐distance network into a time‐distance network so that effects of different speeds in the transportation network can be readily seen. The cost‐effectiveness of each technique is briefly discussed and some recommendations for evaluating computer graphics techniques are provided to aid the user in further assessing their utility in the transportation planning process.     

A hybrid model of fuzzy and AHP for handling public assessments on transportation projects

Having an effective public participation in transportation planning and project development processes has been a major concern for developed countries. In the United States, for instance, all state Departments of Transportation are subject to the Transportation Equity Act (TEA-21) that formally requires public involvement in transportation planning. Since transportation planning involves public resources and values, judgments by the public should play a key role in determining final decisions. Therefore, all these agencies are required not only to disseminate information to the public, but also to solicit and consider public opinion in forming transportation policy. This work presents a decision support model, with public involvement and public oversight, to help policy makers select appropriate transportation projects for implementation. Since focus groups will face multiple objectives and inexact information in the process, a hybrid model of fuzzy logic and analytical hierarchy process (AHP) is proposed. A set of ‘if–then’ rules based on Weber’s psycho-physical law of 1834 is presented to reason from fuzzy numbers to capture essential subjective preferences, pairwise, among the alternatives. The AHP is then incorporated to estimate preference allotments among alternatives. An example application of the suggested method is provided seeking public approval of an appropriate public bus transportation system choosing between one run by municipal authorities and one run by private agencies to show how this procedure works.

Planning for implementation

Although the urban transportation planning process has evolved into the most sophisticated of all urban planning processes, the increasirig difficulty in implementing long-range transportation plans in urban areas today suggests basic questions concerning the process which deserve critical examination.Planning for implementation of urban transportation programs, particularly during periods of rapidly changing human values, requires a continuing re-evaluation of both technical and organizational strategies and their interrelationships.This paper raises some fundamental questions about the traditional activities and relationships that have characterized most urban transportation planning programs in the past. It also suggests a number of strategies, both technical and organizational, that may contribute to the implementation of plans and programs resulting from the transportation planning process.The first portion of this paper discusses the implications of not providing transportation services to match metropolitan growth. The experience of the Washington Metropolitan Area over the past decade is used to illustrate these implications.A discussion of organizational and institutional constraints upon the planning process follows. Then, the implications for the planning process are explored, and the scale of planning is reviewed as well as the need for monitoring the performance and impact of facilities.Next, the paper deals with the need to broaden the range of solutions to transportation problems, including consideration of economic and land development policies to reduce travel demand, as well as the provision of new facilities.Finally, techniques for involving decision-makers in the planning process are discussed. Examples of special project activities in the Washington area are used to illustrate these techniques and their value.     

Changes in transport planning policy: Changes in transport planning methodology?

The 1990s saw the emergence of influential transport legislation both in the UK and in the USA. This "watershed" period appears to indicate that a significant turning point in transport policy is underway. There is now a need to re-evaluate how transport planning is done, and to consider changes to commonly used methods. Criticisms of urban transport planning are traced in the paper. These often focus on the four-stage modelling approach, but some authors also criticise the "rational comprehensive" paradigmatical framework within which the use of four-stage computer models is situated. It is argued that the rational comprehensive model of thinking is less useful today, due to the increasing complexity of the transport planning exercise; the rejection by the public of the transport planner as "expert"; and the highly political nature of transport planning. Alternative approaches are needed in order to address the new types of problems which transport planners face. The use of one such alternative approach, the Soft Systems Methodology, is illustrated as suitable for investigating complex decision-making systems in transport planning. It is suggested that this method could be beneficial in other problematic transport planning situations where the rational comprehensive approaches prove inadequate. Finally, the paper briefly looks ahead and considers the implications of a changing policy environment to the training of transport planners in the future.     

Transportation agencies experiences with decision support systems for airport ground access planning

This article reports on a field investigation into the ways that transportation agencies use quantitative and qualitative information for making strategic decisions regarding airport ground access. The study analyzes the value of this information for planning airport ground access improvements at seven major international airport sites.The major finding of the research is that quantitative modeling for strategic decision support is very difficult, costly and time consuming. Modelers are confident that the models are accurate and reliable but executives generally lack confidence in the results. Transportation officials believe that the information supplied is flawed by a number of defects that minimize its value for strategic decision makers. The information defects described in this article provide an analysis of the structural difficulty of using quantitative modeling for transportation problems of strategic importance. To date, qualitative information is not frequently used, but some transportation agencies are considering its application to designing transportation services. Although this study is limited to airport ground access, the authors feel that this evidence, in conjunction with the evidence from other studies in the transportation area, dictates a need for wariness in the development of decision support systems for transportation planners. Developers of decision support systems for transportation planners must be aware of modeling costs and defects and consider how to improve the timeliness, relevance and credibility of information quantitative models provide transportation executives. Fundamentally it is important to recognize that decision makers tend, either singularly or in concert with other individuals or groups, to be the champions of a long-term vision for the community. When modeling produces inconsistent or wide ranging results that contradict their position, decision makers may not only discard modeling activities, but lose confidence in the models altogether. As a consequence, transportation planners are faced with the challenge of how to improve quantitative modeling. The most reliable and effective means for improvement is incorporation of qualitative techniques which provide greater understanding of customer perceptions and human behavior.     

Integrated modeling of urban hierarchy and transportation network planning

A major problem addressed during the preparation of spatial development plans relates to the accessibility to facilities where services of general interest such as education, health care, public safety, and justice are offered to the population. In this context, planners typically aim at redefining the level of hierarchy to assign to the urban centers of the region under study (with a class of facilities associated with each level of hierarchy) and redesigning the region’s transportation network. Traditionally, these two subjects – urban hierarchy and transportation network planning – have been addressed separately in the scientific literature. This paper presents an optimization model that simultaneously determines which urban centers and which network links should be promoted to a new level of hierarchy so as to maximize accessibility to all classes of facilities. The possible usefulness of the model for solving real-world problems of integrated urban hierarchy and transportation network planning is illustrated through an application to the Centro Region of Portugal.     

My way or the highway? Framing transportation planners’ attitudes in negotiating professional expertise and public insight

Transportation planning continues to expand beyond traditional engineering and economic performance measures toward a broader scope of impacts across space and society. However, the attitudes of transportation planners as they balance their expert knowledge against public insights are not well-understood. We test a two-dimensional attitudinal framework using survey data from 311 U.S. and Canadian transportation planners. We reveal four attitudinal categories using principal component analysis, and hypothesis testing shows significant differences in personal and institutional attributes across these categories. We discuss what our results mean for training and regulatory measures striving to influence planner attitudes before proposing future directions for research.

     

Decision making processes governing federal expenditures within the transportation sector of the United States

The current process for allocating federal funds within the transportation sector of the U. S. is dominated by concerns for territorial equity, administrative feasibility, technical feasibility, and national defense. Economic efficiency as a long range objective is conspicuous by its absence except insofar as it is embodied in the desire to promote the commerce of the nation.Federal allocations for highways, waterways, and maritime subsidies are declining relative to urban public transit, and Coast Guard navigation related expenditures. Environmental considerations and obvious failure in the case of maritime subsidies appear to be the major reasons. Airport and airway allocations will be subject to the same negative forces.The next massive transportation program to appear in the federal budget other than urban public transit is likely to involve the national railway system. The big question here is how the money will be handed out. Economists and planners so far appear to have had little interest or impact in this difficult and crucial area of public decision making.Former Senior Economist, Policy and Plans Development, Office of the Assistant Secretary for Policy and International Affairs, U. S. Department of Transportation. Presently Advisor to the Government of Ethiopia with the Harvard University Development Advisory Service.     

Urban university campus transportation and parking planning through a dynamic traffic simulation and assignment approach

Abstract

Many urban university campuses are considered major trip attractors. Considering the multimodal and complex nature of university campus transportation planning and operation, this paper proposes a dynamic traffic simulation and assignment analysis approach and demonstrates how such a methodology can be successfully applied. Central to the research is the estimation of trip origin–destinations and the calibration of a parking lot choice model. Dynamic simulation is utilized to simulate multiple modes of transportation within the transportation network while further assigning these modes with respect to various mode-specific roadway accessibilities. A multiple vehicle-class simulation analysis for planning purposes becomes a critical capability to predict how faculty and staff who once parked within the campus core choose other nearby alternate parking lots. The results highlight the effectiveness of the proposed approach in providing integrated and reliable solutions for challenging questions that face urban university campus planners and local transportation jurisdictions.     

Benefit-cost analysis for labor intensive transportation systems

Labor-intensive systems such as bikeways and pedestrian ways suffer in transportation planning in part because traditional benefit-cost analysis focuses on narrow, private transportation savings (e.g., reducing vehicle and time costs).Planners need benefit-cost frameworks which capture the community-wide effects of such innovative transportation systems — reduction in air pollution, less congestion, and increases in exercise and outdoor recreation. This study discusses practical methods for planners to include such categories in their analyses and applies these methods to two case studies. The analysis yields benefit-cost ratios which are much higher than those found in most public projects — suggesting negative returns to marginal automobiles in congested areas such as university campuses. The paper concludes with some suggested bikeway planning guidelines that emerge from expanded benefit-cost analysis.     

Transporting Singapore—The Air‐Conditioned Nation

Abstract

The role of a metaphor of centrally controlled air conditioning in governing Singaporean transport planning is examined, and its consequences evaluated. A modern transportation system has been put in place to link a hierarchy of central places. Tight government control has made change possible. A reliance on technical expertise at the expense of public involvement has, however, failed to develop public transport to effectively serve a range of dispersed‐destination travel needs. Regulatory approaches, furthermore, have discouraged service innovation. Policies making car purchase expensive have restricted car ownership. Effective change would be facilitated by involving a highly educated public more in decision‐making.     

An eigenmodel for iterative line planning,timetabling and vehicle scheduling in public transportation

Planning a public transportation system is a multi-objective problem which includes among others line planning, timetabling, and vehicle scheduling. For each of these planning stages, models are known and advanced solution techniques exist. Some of the models focus on costs, others on passengers’ convenience. Setting up a transportation system is usually done by optimizing each of these stages sequentially.In this paper we argue that instead of optimizing each single step further and further it would be more beneficial to consider the whole process in an integrated way. To this end, we develop and discuss a generic, bi-objective model for integrating line planning, timetabling, and vehicle scheduling. We furthermore propose an eigenmodel which we apply for these three planning stages and show how it can be used for the design of iterative algorithms as heuristics for the integrated problem. The convergence of the resulting iterative approaches is analyzed from a theoretical point of view. Moreover, we propose an agenda for further research in this field.     

Reaching decisions about technological projects with social consequences: A normative model

Among the crises facing our society is the public's loss of confidence in technical professionals and their ability to make decisions about large-scale projects (such as highways) in the public interest. To overcome this crisis of confidence, this paper hypothesizes a model for the role of the technical professional in the process of reaching decisions about public actions.In evaluating technological projects with social consequences, one key issue is the differential incidence of impacts. Typically, some groups are hurt in order that others may benefit. Social equity must be considered explicitly. Such presently-used techniques as benefit-cost analysis and point-rating schemes are unsatisfactory. New techniques are needed, reflecting a more comprehensive model for the role of the technical team in the political process.A normative model is outlined. First, the objective of the technical process is defined: to achieve substantial effective community agreement on a course of action which is feasible, equitable, and desirable. Second, a process for achieving this objective is proposed. A key element of this process is a four-phase strategy of technical and community interaction activities to achieve the objective. The basic premise of this approach is that the role of the technical team is to clarify the issues of choice, to assist the community in determining what is best for itself.This theoretical model has resulted in several practical products. A procedural guide for use by highway and transportation agencies has been prepared, and a number of specific operational techniques have been developed and are included in the guide. The procedural guide is now being field-tested in several state highway departments. The theoretical model has already been useful in identifying, in one highway department, opportunities for significant changes in the agency's mission, organization and procedures to enable it to be more responsive to public concerns. The theoretical model also has served as the basis for the development of federal guidelines for consideration of social, economic and environmental factors in highway planning and decision-making, in all of the state highway departments in the U.S.This is a revised version of a paper presented to the Seventeenth North American Meeting, Regional Science Association, November 6–8, 1970.     

Man and his transport behaviour. Part 2c Planning as a substitute for implementation: a bicycle case study

Abstract

Researchers, planners and politicians alike have emphasized the need for systematic planning prior to the introduction of new transportation measures and schemes. Innovations ranging from the construction of new freeways to the encouragement of mode shift are therefore usually the result of detailed studies and extensive planning.

With unsettling frequency, however, the planning has come to replace implementation. The governing body identifies a problem area and commissions either a government planning department or a consultant to develop a plan which outlines needs and proposes measures which address the problem. The problem usually has two groups of people anxious to solve it; individuals who are being affected in their day‐to‐day living or travel, and longer‐term planners (usually politicians) who see it in terms of both extended community planning and votes.

The plan satisfies both sides temporarily, but becomes an effective planning tool only if implemented. Unrealistic plans and unwilling implementors have left a trail of plans which have been ends in themselves. Examples from bicycle planning in Australia show how the use of plan formulation can be either an essential element leading to the implementation of a planning scheme, or an expensive substitute for positive action.

A feature of plans which have been implemented is an integrated approach which makes extensive use of data collection to ascertain the needs of the population. A feature of the unimplemented plans is their concentration on the feasibility of introducing physical elements into the transport infrastructure without studying the travel demand.

It is concluded that the greater the concentration on individual needs and constraints, the less likely that planning will come to replace the implementation of a scheme.     

Policy innovations of the US intermodal surface transportation efficiency act and clean air act amendments

In combination, the Intermodal Surface Transportation Efficiency Act of 1991 (ISTEA) and the Clean Air Act Amendments of 1990 (CAAA) are innovative and aggressive efforts to move US cities toward integrated transportation and air quality planning. Under these complementary laws, air quality has become a major national transportation goal. In areas with serious air pollution, air quality will be a major consideration in determining the future shape of urban transportation.This paper considers how the CAAA and ISTEA combine to provide an innovative national policy approach of interest to countries seeking to encourage sustainable development in urban centers. The CAAA mandates measurable and enforceable air quality targets. Nation-wide standards are set for acceptable levels of carbon monoxide, ground level ozone, and small particulates. ISTEA includes directions for transportation planners and decision-makers to follow to reach air quality and other goals — transportation planning must emphasize system efficiency, and for cities with severe air pollution, transportation projects are expected to contribute to cleaner air. Each urban area has flexibility in how it applies this framework to reflect its priorities and solve its problems. Strict federal sanctions provide incentives for compliance with both laws.Enactment of these laws has produced a period of transition and uncertainty as well as of challenge and opportunity for planners and elected officials. The next several years, the US will provide one national laboratory and over 100 different urban laboratories for innovative approaches to integrate transportation and environmental policies to resolve major urban problems.Abbreviations CAAA Clean Air Act Amendments of 1990 - CO Carbon monoxide - ECO Employee Commute Option - EPA US Environmental Protection Agency - HC Transportation hydrocarbons - I/M Inspections and maintenance program - ISTEA Intermodal Surface Transportation Efficiency Act of 1991 - MPO Metropolitan planning organizations - NO_x Nitrogen oxides - PPM Parts per million - PM₁₀ Small particulate matter - SIP State Implementation Plan - TIP Transportation Improvement Program - TCM Transportation control measures - VMT Vehicle miles traveled