Corridor Planning Guidebook

Public engagement is a critical component of corridor planning because it creates an opportunity for community members to help shape the future of the corridor. Effective public engagement means the outcomes of a plan will not only address the technical and physical constraints of a corridor but also reflect the vision, values, and lived experiences and local knowledge of the people who use it the most.

Public engagement should be used to inform a corridor plan at all five steps of the corridor planning process. The project team needs community members to weigh in on the local vision for the corridor, important issues and opportunities to be addressed, local priorities for design tradeoffs, and much more. Table B-1 below shows sample engagement outcomes, messages, questions, and tactics by corridor plan phase. This table is oriented toward public engagement, but similar outcomes, messages, and tactics should be detailed for partner agency engagement (see Partner Agency Engagement section). To be effective, this information should be defined in the community engagement plan. Use this table as a template or starting point for your engagement plan.

Table B-1. Engagement Activities, Questions and Tactics

Guidebook Steps	Engagement Activities	Sample Questions	Potential Tactics
Step 1. Pre-Planning	Identify plan partners Conduct initial consultation with public and agency partners Establish what is fixed and what plan elements community members can influence Prepare engagement scope of work	What is the purpose of the engagement for this plan? What elements of the plan do you expect the community to influence? How would you like to be involved? Are there other potential partners who should be involved?	Project team meetings Phone interviews Email updates
Step 2. Background and Context	Conduct kickoff Meeting(s) with PMT, other agencies (TAC, etc.) Prepare Engagement Plan Build general awareness of the corridor plan Gather qualitative data from public and agency partners on existing conditions issues, concerns, priorities Document input and use to adjust understanding Refer to results during development of potential solutions	General Questions How do you use the corridor, and where do you go? How do you imagine the future of this corridor? What will it look like? What issues or problems have you noticed? What barriers do you experience within or crossing the project corridor? Topic-Specific Questions See Step 3 Qualitative Input: Agency Engagement questions for each topic area See Step 3 Qualitative Engagement: Public Engagement questions for each topic area	Listening sessions Community events/pop-ups Open house Virtual engagement (survey and interactive map) Project website Email newsletters Physical mailer
Step 3. Existing and Future Conditions
Step 4. Potential Solutions	Facilitate input on the evaluation of potential solutions and strategies Document responses and preferences Adjust evaluation results as appropriate based on new information	Based on the issues/opportunities identified, what are your priorities for this corridor?  Which potential solutions do you feel best address the goals of the project? What is missing?  Which potential solutions do you prefer and why? How do you feel about the evaluation results?	Listening sessions Community events/pop-ups Open house Virtual engagement (survey and interactive map) Project website Email newsletters Physical mailer
Step 5. Implementation Plan	Share implementation plan and next steps, including implementation commitments and how they address corridor plan goals Present feedback to date and how it was considered Build support and excitement for implementation	Do you feel that the recommendations will address the plan objectives?  What do you like about the plan? What would you change? Have the project communications and engagement strategies to date been effective?	Project website Open house Email newsletters Press release Physical mailer

Definitions

The guidance in this section is framed by the following definitions.

• Open Decision Making. The Statewide Multimodal Transportation Plan (SMTP) articulates the Open Decision Making objective as making equitable transportation decisions through inclusive and collaborative processes that are supported by data and analysis.
• Public Engagement. According to the MnDOT Public Engagement Handbook (2021) the term “public” applies to any individual or group not necessarily associated with decision-making power or special interests but who may have an interest in the outcome of a decision. In this context, the term public can include residents, business representatives, property owners, community organizations, non-profits, and travelers, among others. Public engagement refers to the ways in which we inform, consult, involve, collaborate, and empower the public in the corridor plan decision making process.
• Community engagement, public involvement, and public participation are terms that are often used as synonyms for public engagement. For the purposes of this guidance, the term public engagement is used.
• Partner Agency Engagement. Partner agencies are the regional and local jurisdictions (e.g., owners, regulators, service providers, etc.) through which MnDOT highways pass. Partner agencies often have legal jurisdiction over important aspects of a corridor (e.g., land use, utilities, municipal consent, etc.) and may have financial responsibilities in the form of cost participation when it comes to implementing the strategies identified in a corridor plan. For these reasons, local jurisdictions should be an active partner in the corridor plan process. Example partner agencies include local municipalities (i.e., cities, counties, and townships), watershed districts, transit agencies, and municipal planning organizations. Tribal governments also may be project partners and involved either through formal government to government consultation or more informally, at their option.

Healthy Equitable Communities

Public engagement is a critical part of fostering healthy and equitable communities through the corridor planning process. Public engagement helps to identify traditionally underserved communities that may experience disparities in the way the transportation system impacts their health and well-being. Engaging these communities in meaningful ways will ensure that the corridor plan includes strategies to address the specific disparities they experience.

In addition, the Step 3: Existing and Future Conditions subject area guidance sections address Healthy Equitable Communities with respect to each topic from a combined quantitative and qualitative perspective. Summaries of responses or relevant themes are to be included in each subject area discussion in the Existing Conditions report and should be referred to during the engagement process.

Equitable Engagement

Principles

• Everyone affected by a decision has a right to be involved, and we strive to engage all people.​
• Everyone has a valid opinion, and we respect and actively listen to people.​
• We go where people are. We do not expect them to come to us.​
• People engage, learn and receive information in many ways, so we use a variety of strategies and tactics.​
• We seek out local knowledge and contacts (cultural, neighborhood and business) to collaborate and better serve our communities.​
• We give and gather information in multiple ways to provide access for all people invested.​
• We learn from our experiences and hold ourselves accountable to our goals.

Considerations

• Is the information accessible to everyone, from a cultural perspective and for those with different language needs or abilities?
• How is the team considering removal of barriers to participation (location, timing, childcare, language access, compensation for time)?
• How are those with the highest level of interest involved in the process? How can we be transparent in our communications and setting of expectations for their influence and role?
• What level of influence does the public have over the outcomes of the planning process? Which issues/topics are fixed and which are flexible?

 

An engagement plan should be developed early in the process, following Step 1 (Pre-Planning). The engagement plan will typically include target audiences, key messages and questions that link community engagement to the technical steps in the corridor planning framework, specific engagement tactics, roles and responsibilities, and key milestones. Staff should treat the plan as a living document and update it throughout the plan to reflect feedback, address new issues, and adjust tactics as needed.

The MnDOT Public Engagement Handbook (2021) provides guidance for prepare an engagement plan (see Figure B-1 below). The following is a summary of the engagement planning process as it relates to corridor studies. Refer to the MnDOT Public Engagement Policy and Guidance for additional details.

Figure B-1. MnDOT Public Engagement Planning Process

Step 1: Define Expectations

Start the public engagement planning by clearly defining the objectives of the corridor plan and key milestones. It is important to describe not only the problem or challenge from the agency’s perspective but also to listen to and include the public in identifying the problems or challenges as they see them in their community. The project team should be clear on the decisions that need to be made during the plan and how much influence the public can have on those decisions (i.e., understand internal expectations before managing external expectations).

Consultation meetings are a good strategy to help define plan expectations. Consultation meetings involve connecting with agency partners and key community segments early in the process, prior to developing the engagement plan. This can be done in informal phone call interviews or more formal listening sessions.

Step 2: Identify Target Audiences

A critical step in public engagement planning involves identifying target audiences for engagement. This will provide a better understanding of who might have an interest in the plan, help identify the issues people care about, and what needs they may have.
When identifying target audiences, think about the range of voices and perspectives that “should” be heard but may not show up at public meetings or open houses or otherwise engage with the project. Also think about who will be impacted and who could influence the outcome. The target audience analysis should be comprehensive enough to include the full range of interested and affected members of the public and agency partners. Consider plotting the positions and needs of these target audiences on a grid according to their level of interest in the plan and their level of influence. The MnDOT Public Engagement Handbook includes worksheets that can be used to help complete a target audience analysis.

Step 3: Determine Level of Engagement

MnDOT’s commitment to public engagement means the agency will listen first and ultimately inform, consult, involve, collaborate and/or empower stakeholders and the public in transportation decision-making. Because the goals of engagement will vary from one phase of the project to the next, the activities and level of engagement will vary along the spectrum from Inform to Empower.
It is important to identify and communicate the level of influence community members will have over the decision-making process. The project team should answer questions such as what elements of the plan are fixed with no opportunity for public influence, and what elements are flexible and open to public input? Figure B-2 describes the levels of engagement, based on the Spectrum of Participation from the International Association for Public Participation (IAP2). Often, a corridor plan will include aspects of each of these levels of engagement depending on the topic being considered and stage of the plan. Most often consult and involve are used in corridor plans.

Step 4: Clarify Roles

As part of the process of developing an engagement plan, it is important to ensure that there is agreement with stakeholders and agency partners on the problem to be solved. If there isn’t agreement, determine how to address or facilitate a resolution of the problem identification before determining the public’s role in decision-making. Local jurisdictions and partner agencies should be considered in this step to ensure the project addresses not only MnDOT’s goals but also those of the project partners.

Step 5: Create the Engagement Plan

The engagement plan should document the results of steps one through four in a clear and concise document that can be shared publicly. The MnDOT Public Engagement webpage includes extensive guidance on creating engagement plans, including step-by-step process guidance and templates. At a minimum, the engagement plan should include the following:

• Project overview/description
• Identification of target audiences, such as residents, business representatives, property owners, community organizations, non-profits, travelers, etc.)
• Key messages and engagement questions by phase
• Specific engagement tactics
• Roles and responsibilities
• Schedule or timeline

Step 6: Evaluate and Close the Loop

Step 6 is the final step in the engagement planning process and includes both ongoing evaluation and closing the loop with the public and others. While it is part of the last step, evaluation should be ongoing and should occur at every stage throughout the process asking questions like “did we achieve what we set out to achieve?” and “what voices are missing from the process?” Evaluation efforts may be scaled with resources appropriate to the level of project and public engagement activity. It is also important to close the loop with internal and external audiences by summarizing what was learned during the engagement process, how the input informed the plan, and (if needed) explain how MnDOT was or was not able to use selected input.

Engagement Tactics: Additional Detail

Engagement tactics are specific actions used to both inform and collect input from community members and can include in-person meetings or events, virtual engagement tactics like surveys and interactive mapping, and communication tools such as flyers, yard signs, and mailers.

Public engagement tactics should be customized to meet the needs of specific audiences and should include a mix of virtual and in-person activities, grouped to coincide with the engagement phases, as described above. Engagement tactics should provide multiple opportunities for people to get involved in ways that are convenient for them.

Table B-2 includes summarizes common engagement tactics and activities and additional detail on how and when they might be applicable. The MnDOT Public Engagement Planning Handbook includes additional examples of common engagement tactics by engagement level.

Table B-2. Sample Engagement Tactics

In-person Engagement
Pop-up events	Table at an event, activity center, or a specific destination for a given target audience. Use at all phases of a corridor plan to meet people in the community at the places they already go. Can be effective for sharing information and collecting input.
Listening session	Focus group or interview with an individual or group representing a specific viewpoint (e.g., business community, advocate groups, neighborhood organizations, etc.). Great for drilling in on specific topics or interests.
Community-based organization meetings	Meetings with community groups to understand the unique needs and perspectives of specific interests. Great way to leverage the talent and networks of existing organizations who want to get involved.
Field walk/tour	A facilitated walk along all or part of the corridor. Used to show existing conditions to a group of people. Need to consider safety along the route and protective equipment.
Council or board meetings/hearing	A presentation to an existing elected or appointed governing body. Used to involve public officials in the planning process as a means to vet solutions and build support.
Open house/Public Meeting	A meeting in a central location where the public is invited to come engage with the project team. Usually includes a combination of poster boards, display material, interactive activities, and formal presentations. Effective to share major project updates at key milestones. Requires promotion to be effective.
Virtual Engagement
Project website	Project overview and key updates hosted on an agency website or engagement platform. Great way to provide timely updates and an online repository for project information. Not effective for those without access.
Online survey/interactive map	Virtual survey tools used to collect input. Can be used to replicate activities used for in-person meetings, expanding the reach of the project. Not effective for those without access.
Email updates/newsletter	Short project updates sent via email (or physical mail) at key milestones. Can be an effective way to share information.
Social media	Posts to agency social media channel to build project awareness and drive traffic to project engagement events and tools. Can use paid advertising tools to expand project reach and to target specific demographic segments. Note effective for those without access.
Communications and Promotions
Factsheet	Passive communication tool to provide project information. Can be distributed widely in person and online.
Post card/mailing	A mailer to properties within a defined area to promote project events and activities. Need to consider printing and postage costs.
Press release	A statement released to news outlets to share newsworthy information. Should be reserved for important milestones (e.g., project launch, plan recommendations, etc.)
Yard sign/sidewalk decal/indoor display	Passive displays posted in the project area at locations such as grassy boulevards, bus stops, sidewalks, and retail locations. Low cost way to build project awareness.

This section includes guidance for conducting engagement with partner agencies and tribal governments. Partner agencies include the local jurisdictions through which MnDOT highways pass or are adjacent to. Partners often have regulatory jurisdiction over important aspects of a corridor (e.g., land use, utilities, municipal consent, etc.) and may have financial responsibilities in the form of cost participation when it comes to implementing the strategies identified in a corridor plan. In addition, it is often necessary for MnDOT to coordinate investments with partner agencies for related improvements such as intersecting streets, aesthetic improvements, and curbside uses. For these reasons, local jurisdictions should be an active partner in the corridor plan process.

Planning for Partner Agency Engagement

The first step in engaging partner agencies is to identify the partner agencies and tribal governments that should be involved based on their level of ownership and interest in the corridor plan. Typical partner agencies include the following:

• Local municipalities (i.e., cities and townships) and counties
• Metropolitan planning organizations (MPOs)
• Regional development commissions/organizations (RDCs/RDOs)
• Watershed districts or management organizations
• Transit providers
• Tribal partners

It is important to work with partner agencies to determine their level of involvement and to define shared objectives for the corridor plan. MPOs have a unique role in corridor planning as agencies charged with leading continuous and ongoing planning within their regions. Engagement with these partners should include identification of how the roadway corridor relates to any regional transportation policies and plans.

Tools and Tactics

Partner agencies should be active participants throughout the plan process. Table B-3 shows common partner agency engagement tactics and a summary of their applicability.

Table B-3. Common Tools for Partner Agency Engagement

Tool	Applicability
Project Management Team meetings (PMT) A PMT is typically comprised of the lead staff from MnDOT, the consultant team, and others involved with the day-to-day management of a corridor plan. Partner agencies may be on the PMT or on the TAC (see below).	PMTs are used to provide overall oversight and direction, coordination, review and approval of deliverables, etc. PMTs are appropriate for all corridor studies, with the level of involvement and meeting frequency calibrated to the relative size and scope of the study. Larger and more complex studies will often have a more active PMT than studies with a more limited scope of work.
Technical Advisory Committee meetings (TAC) A TAC will often include agency staff with technical roles or specific disciplines, beyond those included in a PMT.	TAC meetings are used to review and vet technical data as it relates to the corridor plan. A TAC is appropriate when the corridor plan involves specific technical disciplines such as stormwater management, traffic, utility coordination, or landscape architecture.
Policy Advisory Committee meetings (PAC) A PAC typically includes local policy makers such as elected officials, appointed boards and commissions, advocacy groups, and business organizations. Note: PACs are less commonly used and their formation should be discussed with MnDOT staff prior to initiation.	PAC meetings are a way to include policy makers (typically executive or senior level staff) in the planning process. A PAC group is not recommended or necessary for all studies. A PAC is likely to be of value in cases where the plan has the potential for policy impact, affects multiple agencies, or otherwise has strong local interest. Convene PAC meetings at intentional plan milestones and clearly define the role and level of decision making authority of the group.
Individual agency coordination meetings Individual coordination meetings are often informal check-ins used to discuss a specific topic.	Individual meetings are useful to discuss topic specific or technical issues such as property access, freight routes, and emergency responder coordination.
Elected official briefings Elected official briefings are typically presentations to elected bodies at a standing meeting.	Use to build awareness and support for a study and/or its outcomes.
Tribal governments and Tribal coordination	Tribal governments also may be partners and involved either through formal government to government consultation or more informally, at their option. Initiate discussion of tribal participation through MnDOT Office of Tribal Affairs