STATE OF WISCONSIN
DEPARTMENT OF TRANSPORTATION
OFFICE OF THE SECRETARY
CLEARINGHOUSE RULE 16-045
The State of Wisconsin Department of Transportation Proposes an Order to Amend Permanent Rule s. Trans 201.23 (2), 202.01 (1) and (2), 202.02 (4) and (14), 202.05 (2), and 202.13 (3); to repeal and recreate Trans 202.05 (4), 202.08, 202.09, and 202.10 (1); and to create Trans 202.02 (10m), Relating to Wisconsin Scenic Byway Program. | PROPOSED ORDER AMENDING PERMANENT RULE |
The Statement of Scope for this Permanent Rule, SS 055-14, was approved by the Governor on May 23, 2014, published in the Wisconsin Administrative Register No.: 702 on June 14, 2014, and approved by the Secretary of the State of Wisconsin Department of Transportation (“Department”) Mark Gottlieb, P.E., on June 26, 2014, as required by s. 227.135 (2), Stats. The Department proposes an Order to Amend Permanent Rule Wisconsin Administrative Code s. Trans 201.23 (2), 202.01 (1) and (2), 202.02 (4) and (14), 202.05 (2), and 202.13 (3); to repeal and recreate Trans 202.05 (4), 202.08, 202.09, and 202.10 (1); and to create Trans 202.02 (10m), Relating to Wisconsin Scenic Byway Program. The analysis below was prepared by the Department. ANALYSIS
Statutes Interpreted: Section 84.106, Stats. Explanation of Agency Authority: Authority for this rulemaking is provided in s. 84.106, Stats. Section 84.106 (1m), Stats requires the Department to develop, implement, and administer a program to designate highways or portions of highways in this state that have outstanding scenic, historic, cultural, natural, recreational, or archaeological qualities as scenic byways. Originally only state and federal highways, except interstates, could be incorporated into a scenic byway. 2011 Wisconsin Act 147 amended s. 84.106, Stats., so that any type of highway, except for interstates, intended for regular use by the motoring public has the potential to be designated as a scenic byway. Section 84.106 (2), Stats., requires the Department to promulgate rules related to the scenic byway program. This rulemaking is to incorporate this statutory change into ss. Trans 201.23 and ch. Trans 202, Wis. Admin. Code. Related Statute or Rule: Section 84.106, Stats. Plain Language Analysis: This rulemaking specifies which types of highways may be integrated into a scenic byway created under s. 84.106, Stats. 2011 Wisconsin Act 147 amended s. 84.106, Stats., so that any type of highway, except interstates, has the potential to be designated as a scenic byway. Prior to 2011 Wisconsin Act 147, only state and federal highways, other than interstates, could be incorporated into a scenic byway. This rulemaking incorporates this statutory change into ss. Trans 201.23 and ch. Trans 202, Wis. Admin. Code, and excludes those parts of the transportation network not designed or intended for regular use by the motoring public. The following types of highways will be eligible for inclusion as a scenic byway:
State and federal highways (currently eligible);
Connecting highways (currently eligible);The following types of facilities fall within the scope of the legal term “highway” but shall not be eligible for inclusion as a scenic byway:
Interstate highways (already excluded by rule);
Bike paths, sidewalks and footpaths (new);
ATV and snowmobile trails (new);
Railroad rights of way (new);
Any other facility not intended for use by motor vehicles (new).Because the Scenic Byways program will now include highways under county and local jurisdiction, to which the federal Highway Beautification Act and conforming state laws do not apply, state outdoor advertising regulations related to scenic highways found in s. Trans 201.23, Wis. Admin. Code will make clear that these outdoor advertising regulations are not being extended to those local and county roads. 2011 Wisconsin Act 147 also created s. 84.106 (3), Stats., related to marking highways. Section 84.106 (3), Stats., specifies that the Department is responsible for the installation and maintenance of scenic byways logo signs along sections of the scenic highway that are part of the state trunk highway system, and also provides that the local government that has maintenance authority over a road or highway shall be responsible for the installation and maintenance of scenic byways logo signs on those roads. Summary of, and Comparison with, Existing or Proposed Federal Statutes and Regulations: 2011 Wisconsin Act 147 is consistent with the authorizing legislation for a national scenic byways program found in 23 U.S.C. s. 162, and the control of outdoor advertising on scenic byways on the Federal Aid Primary System found in 23 U.S.C. s. 131(2). Under federal law, 23 U.S.C. s. 162, the national scenic byway program’s vision is to create a distinctive collection of American roads, their stories and treasured places. Federal Highway Administration (“FHWA”) Interim Policy (Volume 60, No. 96 Federal Register) set forth the criteria for the designation of roads as National Scenic Byways based on their scenic and other qualities, regardless of whether the highways are under state or local jurisdiction. Federal law in 23 U.S.C. s. 131(2) does restrict billboard erection along scenic byways that are part of the interstate or national highway systems.
Like the federal program, the Wisconsin Scenic Byways Program’s current purpose is to identify, through local government initiatives, highway routes with outstanding scenic characteristics and other related qualities and resources that provide travelers with an exceptional travel experience. Consistent with federal law, s. 84.106, Stats., now permits local roads to be added to the scenic highways system. This rule also provides that, consistent with federal law, billboard control required under the federal highway beautification act and corresponding state laws and regulations will not be applied to local highways that are not subject to regulation under s. 84.30, Stats. Comparison with Rules in Adjacent States: While the National Scenic Byways Program administered by the FHWA established the framework and criteria for the program, states have discretion as to how they develop and implement their respective state programs. The Department focus of comparison with respect to neighboring states, is on the following questions:
What are the types of highways that may be integrated into a scenic byway in Illinois, Iowa, Michigan and Minnesota?
Who pays for the initial and replacement logo signs that identify the route as a scenic byway?Illinois All public roads including local roads and county highways in Illinois are eligible for designation. Unless the FHWA designates a scenic byway in Illinois, no new scenic highways may be created in the state. FHWA has not accepted applications for new byways since 2008, so no new byways have been added in Illinois since 2008. Any state or local highway designated as a scenic byway by the Federal government may be signed as a scenic byway in Illinois.
Illinois allows each officially designated byway to have its own unique Scenic Byways logo sign to identify the route as a scenic byway and to guide travelers along it. The average cost of the logo sign is $100. Byway groups pay for the fabrication of the initial and replacement signs. The Illinois Department of Transportation installs signs on the state trunk highway system and the appropriate local government installs signs along local highways.
Iowa All public roads including local roads and county highways in Iowa are eligible for designation.
Iowa allows each officially designated byway to have its own unique Scenic Byways logo sign to identify the route as a scenic byway and guide travelers along it. The Iowa DOT is in the process of updating the graphics on these logo signs. The estimated average cost of the logo sign is $87. The Iowa DOT provides the updated logo signs and installation. The Iowa DOT will provide replacement signs and the local governments or the Iowa DOT district offices will install them.
Michigan Numbered US and state trunk highways in Michigan are eligible for scenic byway designation. Local roads and county highways are not eligible for designation as a state scenic byway.
Michigan has a single standardized logo sign that is used on all of its formally designated byways. In December 2014, the Michigan legislature passed a bill to change the name from “Heritage Route” to “Pure Michigan Byway” as part of a rebranding and reinvention of the program. The estimated cost per sign is $16; they are made at a state prison. The Michigan Department of Transportation will replace the old logo signs at the end of their life expectancy which is 15 to 20 years. Signs may be replaced earlier if the local byway committee secures funding for the logo signs from a local transportation office or from another source of funding. The Michigan DOT maintains the erected signs.
Minnesota All public roads including local roads and county highways in Minnesota are eligible for designation.
Minnesota allows each officially designated byway to have its own unique Scenic Byways logo sign to identify the route and guide travelers along it. The average cost of the logo sign is $82.
The byway groups need to secure funding from public or private sources for the fabrication of the initial and replacement signs. The byway groups must also make arrangements for the installation of the signs.
Summary of Factual Data and Analytical Methodologies: Section 84.106 (2), Stats., requires the Department to promulgate rules related to the scenic byway program. 2011 Wisconsin Act 147 is consistent with the authorizing legislation for a national scenic byways program found in 23 U.S.C. 162, and the control of outdoor advertising on scenic byways on the Federal Aid Primary System found in Title 23 U.S.C. 131(s). Analysis Regarding Rule’s Effect on Small Businesses: This proposed rule neither requires nor prohibits any action on the part of any small business. This rule will not impose any direct or indirect costs on small businesses. The anticipated economic impact of implementing the proposed rule changes are:
Scenic byways designation may provide an additional attraction for tourists. Therefore, more scenic byway designations should have a positive impact on tourism.
Scenic byway designation provides municipalities on a route with a means of distinguishing themselves from other nearby municipalities (e.g., “come visit us; we are a scenic byway”). Designation also creates additional avenues for promotion at the local level.
In 2004, an economic impact study and marketing analysis was conducted of Wisconsin’s first scenic byway known as the Great River Road. The route is primarily on WIS 35, from Prescott to Kieler. The study showed that in 2003, recreational users along the Great River Road Scenic Byway generated an estimated $337.5M in tourist expenditures. These expenditures supported an estimated 10,219 full-time equivalent jobs on the scenic byway. The full-time jobs generated an estimated additional $145M in wages and proprietary income.
