The full definitions for terms included in this article (listed below) can be found in the HKP Glossary

• • Public 
  • Public Involvement 
  • Public Involvement Plan (PIP) 

1.1 Public Involvement Defined

Public involvement is the process of actively engaging and involving the public in decision making. KYTC carries out public involvement activities to solicit input, receive feedback, and formally consider public perspectives during transportation planning, design, and implementation processes (1).

The public includes the following stakeholders (2):

• All users of the facility (irrespective of transportation mode)
• Individuals, businesses, and organizations affected by the project (including those that reside in the project area)
• Elected officials
• Others interested in the project’s outcome

Regardless of the types and methods of public involvement used, the Project Manager (PM) and Project Development Team (PDT) should implement seven basic steps to execute the public involvement process for any decision or activity (2):

1. Create a plan for public involvement activities.
2. Identify the interested and affected public.
3. Provide information to the public and conduct outreach.
4. Offer assistance to the public to facilitate their involvement.
5. Conduct public involvement activities.
6. Review and consider public input. Provide feedback to the public.
7. Evaluate public involvement activities.

1.2 Roles and Responsibilities

The KYTC Public Involvement Plan is the primary resource that governs public involvement activities in Kentucky. The (Highway Design Guidance Manual HD-600) describes the roles and responsibilities of PDT members involved in public involvement activities. This information is summarized in Table 1. Each District functions slightly differently, and some of these responsibilities could be delegated to others on the PDT. PMs need to be familiar with the roles and responsibilities of each team member. For planning study projects see the Planning Guidance Manual (PL-701.2) for the approval chain.

The level of public involvement can vary significantly between projects and depends on the project location, type, and magnitude. For example, on projects where several alternatives are under consideration or projects that trigger greater public controversy, more public meetings may be necessary. 

Understanding tradeoffs and constraints associated with each alternative is critical for informing the public and increasing the likelihood of public acceptance. Early public involvement lets community members offer critical insights about the project’s goals, needs, and its effects on the community.

Section 2.1 provides typical timelines for public involvement in the project development process for two project types — (1) Categorical Exclusion (CE) projects and (2) Environmental Assessment (EA), Finding of No Significant Impact (FONSI), Environmental Impact Statement (EIS) projects. Section 2.2 addresses public involvement plans and provides additional information about key points during public involvement.

Although the subsections below focus on projects that include public hearings and meetings, the PM should keep in mind that the level and types of public involvement varies between projects. When deciding how to approach public involvement, the PM must select methods that will provide clear and accessible information to affected communities and provide stakeholders adequate opportunity to provide feedback while working within project budget and schedule constraints.

2.1 Public Involvement Timeline

Several opportunities to engage the public are available during the project development process. Most of these opportunities occur during Preliminary Engineering prior to National Environmental Policy Act (NEPA) approval. Early public engagement can be used to identify the public’s issues and concerns. Public engagement during later stages of project development can be used to communicate project details to the public and to show the public how the project addresses their concerns.

Figure 1 indicates when public involvement typically occurs during project development on a typical capital improvement project where the NEPA document is a CE.

Figure 1: Public Involvement Process Timeline for a Typical Capital Improvement Project (EA, FONSI, or EIS NEPA Document)

A public hearing must be held for projects with a NEPA document including an Environmental Impact Statement (EIS), Environmental Assessment (EA) or a Finding of No Significant Impact (FONSI). Figure 2 shows when the public hearing takes place for these project types. Additional information on Public Hearings is available in the Highway Design Guidance Manual (HD-603 and Exhibit 200-06)

Figure 2: Public Involvement Process Timeline for a Typical Capital Improvement Project (EA/FONSI or EIS NEPA Document)

A PIP’s content should be tailored to individual project needs and may include items or activities ranging from contacting individual property owners on small projects to conducting a series of public involvement meetings or public hearings on more complex projects. Some PIPs may prescribe the formation of a citizens advisory committee, the purpose of which is to involve property owners or special interest groups when significant environmental issues or concerns must be addressed. A PIP must facilitate communication between KYTC and the public so the Cabinet can make the best transportation decision possible.

The PDT should develop a PIP outline during the early stages of project development. The plan must include any federally required public hearings. Supplemental public involvement meetings that will contribute to better decisions on the project location or details may be included as well. The plan may be modified as the project advances, and it should be reviewed by the PDT at critical stages in project development. The PIP should describe the specific methods that will be used to conduct public outreach, such as telephone surveys, newsletters, social media, websites, and focus groups (2).

The KYTC Public Involvement Toolbox website contains examples of PIPs. The following template can be used when developing a PIP:

1. Identify the purpose of the plan

    a. What transportation decisions are to be made?

    b. What is the desired level of public involvement/influence?

2. Status of the project development process (brief summary of the process up to this point, including planning).

3. History of public involvement related to the project (brief summary of past public involvement     activities, including Statewide Transportation Improvement Plan (STIP) comments, Metropolitan Planning Organization/Area Development District (MPO/ADD) engagement, and planning activities).

4. Understand the affected communities/public. List and briefly describe each. The PM can also create an Excel spreadsheet that compiles contact information of interested parties for future coordination and project updates. For each community, the PIP should include:

    a. A community profile (social, economic, and political structures)

    b. Key community issues and interests

    c. Assessment of community awareness of and knowledge about the project

    d. Identification of special sensitivities and/or requirements related to public involvement methods and activities

5. Summarize the overall approach to public involvement. List and briefly describe each:

    a. Outreach

    b. Education

    c. Gathering of input

    d. Opportunities for direct involvement

    e. Pathways for incorporating input into decision making

    f. Providing feedback to the public on decision making

    g. Plan for monitoring, evaluating, and readjusting the PIP

6. Define specific action steps, techniques, and timing for public involvement (i.e., who will do what, on what timeline, and with what resources).

Figure 3: Sample Meeting Notification with Request for Accommodations

2.3 Early Public Involvement in Preliminary Design

For larger or controversial projects — those whose NEPA document is an EA, FONSI or EIS — a public meeting must be held as soon as possible in the project development process to address the Purpose and Need statement. Projects where the NEPA document is a CE may also benefit from a public meeting.

The first public meeting is typically an informal public kickoff for the project. The purpose of this meeting is to gather information, describe the project development process and project timeline, determine community support for the project, and understand community issues as well as the public’s expectations for the project. A request for accommodations should be made part of any public meeting advertisement.

For large-scale projects and/or projects that involve a sensitive corridor, assembling a group of stakeholders may prove beneficial. Stakeholder engagement helps the PM and PDT develop a better understanding of conditions in the project area and can also provide the stakeholders with a better appreciation of what goes into the project development process. Stakeholder groups may include members with different backgrounds (e.g., local officials, emergency services, school transportation and/or administration, impacted utility owners). The composition of stakeholder groups should be tailored to the project’s needs and context. Often stakeholder groups continue to meet periodically to receive updates and discuss alternatives and other project-related information provided by the PDT. If more direct involvement with the PDT is needed, the PDT may engage a subset of the stakeholder group through a focus group.

2.4 Later Public Involvement in Preliminary Design

Once the PDT has developed a reasonable number of feasible and competitive alternatives and understands the potential impacts of each, it may be appropriate to hold another stakeholder meeting to present alternatives, solicit opinions, and obtain stakeholder buy-in. This meeting may be held before or after identifying a preferred alternative. Once stakeholders have been brought up to date on the alternatives, another public meeting should be held to present the preferred alternative and obtain further public input.

Continued public involvement is very important for the progress of a project. The main objective of public meetings during the latter stages of alternative development is to let community members examine, review, and comment on the details of each alternative. Opinions voiced at late-stage meetings are important considerations when selecting an alternative. Public meetings at this juncture are also used to discuss how issues or concerns brought up at a previous meeting can be resolved, particularly challenges related to environmental commitments.

2.5 Review, Summarize, and Address Public Comments

Public involvement efforts help the PM and PDT identify and document the community’s concerns about the project. After meeting with the public, the PM and PDT should prepare a summary that describes key issues voiced by members of the public. Close attention should be paid to special sensitivities, requests, and/or requirements advanced by community members. After examining public meeting records, the PM (assisted by the PDT) should address public comments and provide feedback to the community where they judge it appropriate to do so. The PM and PDT should also develop plans — if necessary — for resolving issues so the project can move forward. If a significant amount of time elapses between the public involvement meetings and project letting, consider updating the public through media, newsletters, websites, social media, or other means as appropriate.

Documentation is required for any public involvement activity or contact that is part of the project decision making process. For Public Hearings this documentation must include the items listed in the Highway Design Guidance Manual (HD-603.1). Often referred to as the Public Hearing notebook, these items are summarized below. Public meeting records may also follow the documentation needs listed in HD-603.1, with a few of the components not being required (see below). Documentation of public involvement activities outside of public hearings and meetings can be accomplished by including a memorandum in the project files that summarizes methods used to conduct the activities and public feedback.

Documentation for a Public Hearing (best practice is to use for public meetings too)

• Cover Sheet
  • Titled as Corridor or Design Public Hearing, county, item number, road name; and date, time, and place of hearing
• Table of contents
• Notification to manager of advertising section of newspaper
• Legal notice
  • Not needed for public meetings
• Tear sheet from newspaper
• Sketch map showing the project on which the hearing was held
• Copy of handouts
  • If a presentation is given, copies of slides can go here.
• Sign-in sheets, including KYTC staff, consultants, FHWA, and all persons attending
• For formal hearings, a transcript of the entire proceedings. For informal hearings, all oral statements received.
  • The record will include all statements made and identify the persons who made them. The record should show throughout that all pertinent subjects were open to discussion and that everyone had an opportunity to speak.
    • Not needed for public meetings
  • The record should include a certification that states the transcript is a true, complete, and accurate record of the hearing and/or oral statements received.
    • Not needed for public meeting
  • Written statements, endorsements, etc. Copies should be obtained and made part of the hearing record.
    • For public meetings, questionnaire responses can be shown in this section, including any from online sources. Charts and graphs can help summarize the responses received.
  • Copies of replies to statements made.
    • Not needed for public meetings
  • Copies of statements and exhibits used during the public hearing.
    • For public meetings pictures of exhibits in the meeting room should be included. Comments the public attaches or draws on exhibits can also be compiled here.

2.6 Identify and Study Additional Alternatives (if Required)

Based on comments or additional information received at the public meetings and/or stakeholder meetings, the PDT may need to study further alternative combinations, crossovers, or new alignments. New solutions must be evaluated at the same level of detail as previous alternatives before a final alternative selection is made.

If a new alternative(s) appears promising (e.g., achieves the Purpose and Need at a lower cost or with fewer impacts), the PM and PDT should discuss and then decide whether more time should be allocated to investigate it and collect relevant information. When deciding if a new alternative should be examined late in Preliminary Design the PDT must consider the project budget, schedule, and milestones. A new alternative that reduces impacts may simplify and compress the Final Design schedule and/or decrease the overall project cost, affording time and money for study while still meeting the targeted letting date. If studying a new alternative requires more design funding or time, the decision should be coordinated with the CDE and Central Office to obtain their approval.

2.7 Public Hearing (if Applicable)

On Federal-aid projects whose NEPA document includes an EA, FONSI or EIS, once the draft EA is completed and approved by FHWA, KYTC must: (1) give the public an opportunity to request a public hearing or (2) hold a corridor and/or design public hearing.

The primary objectives of a public hearing are to (1) circulate detailed project information for public review and comment and (2) discuss how issues and concerns voiced during earlier meetings have been resolved, especially those related to environmental commitments. For more information on public hearings see the Highway Design Guidance Manual (HD-603).

Public involvement should be a part of any KYTC project regardless of project type or magnitude. As noted, methods used for public involvement and the level of effort should be scaled to fit individual projects.

3.1 Safety Projects

Public involvement activities for safety projects typically focus on talking to affected property owners over the telephone or meeting them onsite to discuss project improvements and how they will affect their property. Communication can also take place over email. If the impacts are larger, a stakeholder or public meeting may be held. For projects such as community safety plans, holding recurring stakeholder or steering committee–type meetings are a good option. If road diets (roadway reconfiguration) are considered, the District cannot proceed without a public information/outreach effort (3).  

Coordination with the Central Office Traffic Safety Branch, which oversees the Highway Safety Improvement Program (HSIP), is essential for developing an appropriate public involvement strategy for safety projects.  

3.2 Asset Management Projects

Asset management projects (bridge replacement/rehabilitation and pavement rehabilitation) typically involve less public involvement than capital improvement projects. Depending on the project context, more in-depth public involvement may be needed, such as when right of way is required or if maintenance of traffic will produce significant disruptions (e.g., road closures, lane closures). In these cases, PMs need to coordinate with the District PIO.

3.3 Maintenance Projects

For planned maintenance activities the District PIO will communicate information provided by Division of Maintenance staff to the public before the anticipated start date. District PIOs convey this information through notifications on social media, updates to the District webpage, and press releases to the media.

For maintenance projects that include roadway or bridge closures, the CDE or their designated representative must notify the following entities that KYTC intends to close a facility (4):

• County school superintendent
• Post office
• Law enforcement agencies
• Ambulance services
• Fire department
• Public transportation agencies

When KYTC expects maintenance work to impact traffic for a significant period of time, variable message signs can be used to provide additional notice.

Meetings with individual property owners typically occur if a question or concern is received from a property owner.

Numerous methods and tools can be used to engage the public. These methods and tools fall along a spectrum, ranging from the lowest level of involvement/intensity to higher levels of involvement/intensity. Figure 4 visualizes this spectrum and lists common public involvement techniques used.

Figure 4: Spectrum of Public Involvement Activities

• Public Hearings
  • Used when required. Refer to the Highway Design Guidance Manual (HD-603) for an in-depth discussion on public hearing details including preparation, announcement, legal notice, how to conduct a hearing, and documentation requirements.
• Public Meetings – Both in-person and virtual formats
  • Citizens’ Advisory Committees
  • Stakeholder Groups
  • Public Information Meetings – Typically adopt an informal format
  • Property Owner Meetings – Typically include property owners where right of way is needed
• Design Charrettes
  • Meetings called to resolve problems or issues and can include members of the PDT, stakeholders, and the public. A time limit is imposed for participants to reach a resolution.
• Newsletters
  • Can be emailed or issued via postcards
  • Local elected officials, homeowners associations, and other associations (such as business associations) can include project information in their newsletters
• Press Release to Media
  • Distributed to print, television, radio, and online outlets
• Social Media
  • If using Facebook, a Facebook Boost can be used to target specific audiences, such as those within a defined geographic location. It amplifies a post’s reach at a low cost.
• Project Website
  • On District webpage
  • Project-specific webpage
• ArcGIS StoryMaps
  • A web-based application for sharing maps, narratives, and multimedia content with the public.
• Online Surveys
  • Metroquest, Mentimeter, and Surveymonkey are a few examples.
• Variable Message Signs
  • Used onsite to notify public of upcoming meetings
• Press Conference or press releases
  • coordinate with KYTC’s Office of Public Affairs
• Telephone calls or email communications with public

Build Your Team

Project Management & Preliminary Design

Organizing and Running Effective Project Development Meetings

Effective Communication in Project Management

Florida DOT Public involvement Handbook (August 2023)

KYTC Highway Design Guidance Manual

KYTC Traffic Operations Guidance Manual

KYTC Division of Maintenance Guidance Manual

Promising Practices for Meaningful Public Involvement in Transportation Decision-Making, USDOT

KYTC Public Involvement Process (2020)

KYTC Planning Manual

KYTC Public Involvement Toolbox

KYTC Virtual Meetings Guidance (September 2020)

KYTC Partnering Conference, 2021 | Public Involvement Post Pandemic; Connecting Virtually and In-Person:

KYTC Division of Environmental Analysis Guidance Manual

KYTC Scheduled Public Meetings

FHWA Public Involvement Techniques for Transportation Decision Making (2015 Update)             

KYTC Highway District Media Pages