Access to Jobs, Economic Opportunities, and Education in Rural Areas (2023)

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1   Transportation infrastructure—including local roads and highways, transit, and pedes- trian and bike infrastructure—is critical for providing access to jobs, services, and health care. In rural areas, the availability and quality of transportation infrastructure is so defi- cient that it adversely affects rural residents. Causes range from reliance on unpaved roads to a lack of public transit services. S U M M A R Y Access to Jobs, Economic Opportunities, and Education in Rural Areas Accessibility and Connectivity Hansen (1959) defines accessibility as “the opportunity which an individual or type of person at given location possesses to take part in a particular activity or set of activities.” A related concept is connectivity, which refers to the quality of linkages between points in a network. Improving connectivity will generally improve access. However, access to economic opportunities and social services also depends on other factors, including the location of people, jobs, and services. This report investigates rural access issues and suggests advice for stakeholders involved with planning and providing rural transportation services. (See Accessibility and Connec- tivity text box for access-related terms and definitions.) Access Needs Through a review of academic and industry literature, the research team found that access needs vary considerably by population group, destination type, and travel mode. Further- more, people with disabilities, older adults, adolescents, and people with low incomes all face unique barriers to rural access. This is particularly evident in households that lack access to a vehicle, since transit services are generally less available in rural areas. Access to jobs, education, health care, and social services is essential for economic growth and well-being in rural areas. The researchers found that job access is particularly challeng- ing among low-wage, shift-work, and seasonal segments of the workforce; and employers

2 Access to Jobs, Economic Opportunities, and Education in Rural Areas express difficulty in finding these types of workers because they tend to face greater trans- portation barriers. In rural areas, access to educational facilities—particularly institutions of higher learning, like colleges and universities, which are often concentrated in urbanized areas—also tends to be limited. Within K–12 education, school buses often must travel on two-lane roads that can be closed due to construction, inclement weather, or natural disasters. Because there are often few alternative routes in rural areas, these events can cause considerable disruptions to educational access. Health care institutions face similar challenges, as transportation dis- ruptions can prevent people from seeking preventive care or even receiving emergency care in a timely fashion. The research team also found that access needs vary by travel mode. Access to public transit and shared mobility services is particularly important for underserved or vulner- able population groups, whereas roadways and bridges are necessary for expanding access to all road users. Bicycle and pedestrian facilities can improve accessibility for people who lack vehicle access, transit access, or both. The team’s case study research in Maine found that even providing bike racks on rural transit vehicles—a relatively low-cost solution—can encourage travel using these modes. Lastly, the team found that rural broadband access can be a critical substitute for gaps in transportation service, particularly when it enables people to work, learn, or receive medical care online. Challenges to Improving Rural Access Figure S-1 illustrates key challenges to improving rural access. The researchers identified these challenges through a literature review and interviews with organizations that provide rural transportation services. The challenges on the left are intrinsic to rural areas, making them difficult or even impossible for individual organizations or communities to over- come. Intrinsic challenges include low population or job density, which makes destinations farther apart, and mountainous terrain that makes travel especially difficult. These intrinsic challenges influence the organizational challenges arranged in the circle within Figure S-1. Infrequent Cross-Agency Coordination Infrequent Stakeholder Engagement Few Rural Evaluation Methods Limited Staff Capacity Limited Access to Funds Low Density Context Specific (weather, topography, aging population, seasonal workforce) Figure S-1. Challenges faced in rural areas.

Summary 3 The research for this project focused on the five organizational challenges where there are opportunities for change. Rural areas often lack central transportation agencies, such as a metropolitan planning organization for planning and a transit agency to provide ride services. One consequence is that transportation services and transportation advocacy end up dispersed among various local and regional health care, education, municipal government, and economic develop- ment organizations. This dispersal presents the following types of organizational challenges: • In rural areas, where jurisdictions can be particularly expansive, cross-agency coordination is particularly important for combining funding sources, sharing resources, and addressing regulations that cross boundaries. • Many rural areas are located far from state and federal governing bodies, which can limit stakeholder engagement and participation in planning, investment, and implementation decisions. • Rural transportation investments often score poorly when evaluation methods that focus on per mile or per person metrics are used. • Staff capacity in rural areas is often limited, in part because organizations that represent smaller populations tend to receive less funding than their counterparts serving larger populations. • Securing funding can also be difficult in rural areas because low population and job den- sity generate a smaller local tax base from which to fund local projects. Critical Objectives and Strategies Rural transportation organizations cited critical objectives that stem directly from the access challenges discussed previously. These objectives include improving coordination, expanding stakeholder engagement, developing rural evaluation tools and policies, improv- ing staff capacity, and leveraging funding. Table S-1 lists strategies for addressing each of these objectives that were identified through the research. Cross-Agency Coordination •Formalize partnerships. •Pool resources. •Coordinate across boundaries. •Connect planners and providers. Stakeholder Engagement •Coordinate engagement. •Engage stakeholders online. Evaluation Methods •Use access measures. •Use indicators of distress or need. •Quantify economic impacts. •Restructure scoring systems for geographic equity. •Use qualitative indicators. Staff Capacity •Offer training and support. •Leverage tools and datasets. Access to Funds •Utilize fund braiding. •Coordinate uses of funding. •Form public- private partnerships. •Right-size investments. Table S-1. Strategies to address critical objectives.

4 Access to Jobs, Economic Opportunities, and Education in Rural Areas Planning Process The research team identified five steps in the rural transportation planning process where organizations can address access constraints and challenges. These steps range from set- ting goals around access improvement to monitoring short-term activities and long-term outcomes (see Figure S-2). Appendix C provides resources that can be used during various steps in the planning process. Research for this project also includes case studies from Idaho, Iowa, Maine, North Carolina, and Wisconsin that illustrate promising practices in improving rural access and connectivity. For example, in Iowa, state department of transportation planners used stake- holder engagement and data-driven evaluation to identify transit needs for small commu- nities, and then they coordinated at the local level, which allowed organizations to stretch their limited financial resources. In Downeast Maine, a remote part of the state, transit providers leveraged diverse funding sources (e.g., MaineCare) to meet needs ranging from social services and medical trips to job access and tourism. Applications and Future Research Rural areas face access limitations that can be challenging to address. The quality and availability of supporting infrastructure impact residents’ ability to easily access what they need. This is true of not only transportation infrastructure but also broadband service. Rural access is also heavily influenced by geographic, economic, and demographic conditions, including mountainous terrain and low rates of vehicle ownership. This report provides a framework that planners and policymakers can use to think through access challenges. Proven strategies and stand-alone resources that organizations can adapt to various scenarios are also included. Future research could focus on emerging technological solutions to access challenges, especially in light of changes in work, education, and health care travel patterns that have become prominent since the beginning of the COVID-19 pandemic. Broadband could also be a subject of continuing research insofar as it enhances rural access. Goal Setting Development Funding & Financing Implementation Monitoring Figure S-2. Steps in the planning process.