[Federal Register Volume 71, Number 135 (Friday, July 14, 2006)]
[Notices]
[Pages 40178-40187]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: E6-11071]
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DEPARTMENT OF TRANSPORTATION
Federal Transit Administration
[Docket Number: FTA-2005-23227]
Notice of Proposed Title VI Circular
AGENCY: Federal Transit Administration (FTA), DOT.
ACTION: Notice of proposed revisions and request for comment.
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SUMMARY: The Federal Transit Administration (FTA) is revising and
updating its Circular 4702.1, ``Title VI Program Guidelines for Urban
Mass Transit Administration Recipients.'' FTA is issuing a proposed
Title VI Circular and seeks input from interested parties on this
document. After consideration of the comments, FTA will issue a second
Federal Register notice responding to comments received and noting any
changes made to the Circular as a result of comments received. The
proposed Circular is available in Docket Number: 23227 at http://dms.dot.gov.
DATES: Comments must be received by August 14, 2006. Late filed
comments will be considered to the extent practicable.
ADDRESSES: You may submit comments identified by DOT DMS Docket Number
FTA-05-23227 by any of the following methods: Web Site: http://dms.dot.gov. Follow the instructions for submitting comments on the DOT
electronic docket site; Fax: 202-493-2251; Mail: Docket Management
Facility; U.S. Department of Transportation, 400 Seventh Street, SW.,
Nassif Building, PL-401, Washington, DC 20590-0001; Hand Delivery: Room
PL-401 on the plaza level of the Nassif Building, 400 Seventh Street,
SW., Washington, DC, between 9 a.m. and 5 p.m., Monday through Friday,
except Federal holidays.
Instructions: You must include the agency name (Federal Transit
Administration) and the docket number (FTA-05-23227). You should submit
two copies of your comments if you submit them by mail. If you wish to
receive confirmation that FTA received your comments, you must include
a self-addressed, stamped postcard. Note that all comments received
will be posted without change to the Department's Docket Management
System (DMS) website located at http://dms.dot.gov. This means that if
your comment includes any personal identifying information, such
information will be made available to users of DMS.
FOR FURTHER INFORMATION CONTACT: David Schneider, Office of Civil
Rights, 400 Seventh Street, SW., Washington, DC, 20590, (202) 366-4018
or at [email protected].
SUPPLEMENTARY INFORMATION:
Background
The authority for FTA's Title VI Circular derives from Title VI of
the Civil Rights Act of 1964, 42 U.S.C. 2000d, et seq, which prohibits
discrimination on the basis of race, color, or national origin in
programs and activities receiving Federal financial assistance.
Specifically, Section 601 of this Title provides that ``no person in
the United States shall, on the ground of race, color, or national
origin, be excluded from participation in, be denied the benefits of,
or be subjected to discrimination under any program or activity
receiving Federal financial assistance,'' (42 U.S.C 2000d). Section 602
authorizes Federal agencies ``to effectuate the provisions of [Section
601] * * * by issuing rules, regulations or orders of general
applicability,'' (42 U.S.C. 2000d-1). The U.S. Department of
Transportation (DOT), in an exercise of this authority, promulgated
regulations, contained in 49 CFR Part 21 that effectuate the provisions
of Section 601 and Title VI in general.
FTA Circular 4702.1, titled ``Title VI Program Guidelines for Urban
Mass Transit Administration Recipients,'' provides information on how
FTA will enforce the Department of Transportation's Title VI
regulations at 49 CFR Part 21. The Circular includes information,
guidance, and instructions on the objectives of Title VI, information
on specific grant programs covered by Title VI, a description of FTA
data collection and reporting requirements, a summary of FTA Title VI
compliance review procedures, a description of FTA process for
implementing remedial and enforcement actions, information on how FTA
will respond to Title VI complaints, and public information
requirements. Circular 4702.1 was last updated on May 26, 1988.
The proposed circular would make reference to and in some instances
would summarize the text of other FTA guidance, regulations, and other
documents. Many of the documents referred to will undergo revision
during the life of the proposed circular. In all cases, the most
current guidance document, regulation, etc will supercede any preceding
information provided. FTA reserves the right to make page changes to
proposed and final circulars regarding updates to other provisions,
without subjecting the entire circular to public comment.
Comments Related to Reporting Requirements: In addition to general
comments concerning the draft Title VI Circular, FTA is seeking
comments from its recipients and subrecipients concerning the costs and
benefits associated with meeting the proposed Circular's guidance.
Recipients and subrecipients are encouraged to comment on the number of
hours and/or financial cost associated with implementing the Circular's
guidance as well as the extent to which following the guidance will
assist the recipient and subrecipient in achieving its organizational
objectives.
I. Why is FTA revising its Title VI Circular?
The DOT Title VI regulations and FTA Circular 4702.1 attempt to
transform the broad antidiscrimination ideals set forth in Section 601
of Title VI into reality. In the 18 years since FTA last revised its
Title VI Circular, much of FTA's guidance has become outdated. Over
those years, legislation, Executive Orders, and court cases have
transformed transportation policy and affected Title VI rights and
[[Page 40179]]
responsibilities of recipients and beneficiaries. These laws, executive
orders, DOT directives, and legal decisions include:
The Intermodal Surface Transportation Equity Act (ISTEA),
enacted in 1991; the Transportation Equity Act for the 21st Century
(TEA-21), enacted in 1998; and the Safe Accountable, Flexible and
Efficient Transportation Equity Act, a Legacy for Users (SAFETEA-LU),
enacted in 2005. These reauthorizations created many programs and
activities. While these new programs are bound by Title VI's
prohibition on discrimination, Circular 4702.1 does not provide
specific guidance that would help FTA recipients funded by these
programs to comply with Title VI.
Executive Order 12898, ``Federal Actions to Address
Environmental Justice in Minority Populations and Low-Income
Populations,'' (issued in 1994) and the DOT Order on Environmental
Justice 5610.2 (enacted in 1997). This Executive Order clarified and
reaffirmed Federal agencies' Title VI responsibilities and addressed
the effects of Federally-funded activities on low-income populations.
The Executive Order contains three fundamental principles: (1) To
avoid, minimize, and mitigate disproportionately high and adverse human
health and environmental impacts, including social and economic
effects, on minority and low-income populations; (2) to ensure full and
fair participation by all potentially affected communities in the
agency's decision-making process and; (3) to prevent denial of,
reduction in, or significant delay in the receipt of benefits by
minority and low-income populations.
In 1997, DOT issued the U.S. DOT Order on Environmental Justice,
which states that DOT will continually monitor its programs, policies,
and activities to ensure that they conform with environmental justice
provisions. The DOT Order applies to all policies, programs, and other
activities that are undertaken, funded, or approved by FTA, including
policy decisions, systems planning, metropolitan and statewide
planning, project development and environmental review under the
National Environmental Policy Act (NEPA), construction, and operations
and maintenance. FTA recipients and subrecipients who perform these
activities would benefit from guidance that describes how to administer
programs and activities in a manner that is consistent with DOT Order
5610.2.
Executive Order 13166, ``Improving Access to Services for
Persons with Limited English Proficiency'' (issued in 2000) and the
``Department of Transportation Policy Guidance Concerning Recipients'
Responsibilities to Limited English Proficient Persons'' (DOT LEP
Guidance) issued in 2001 and revised and reissued in 2005 (See 70 FR
74087). Executive Order 13166 requires Federal agencies and their
recipients and subrecipients to examine the services they provide,
identify any need for services to those with limited English
proficiency (LEP), and develop and implement a system to provide those
services so that people with LEP can have meaningful access to them.
The Executive Order is designed to reinforce and implement the
prohibition against national origin discrimination of Title VI. Under
the Executive Order, each recipient and subrecipient of Federal
financial assistance must take reasonable steps to provide meaningful
access for people with LEP.
In 2005, DOT issued policy guidance to clarify the responsibilities
of recipients and subrecipients of Federal financial assistance from
DOT and assist them in fulfilling their responsibilities to people with
LEP. The guidance reiterates DOT's longstanding position that in order
to avoid national origin discrimination, recipients and subrecipients
must take reasonable steps to ensure that such people have meaningful
access, free of charge, to their programs, services, and information.
Circular 4702.1 already includes requirements for people with LEP, but
falls short of the more nuanced and comprehensive instructions in the
DOT LEP Guidance. The proposed circular will clarify the connection
between language assistance and Title VI compliance.
The Supreme Court ruling in Alexander v. Sandoval, 532
U.S. 275 (2001). In this decision, the Supreme Court noted that U.S.
Department of Justice (DOJ) and DOT regulations proscribing activities
that have a disparate impact on people or organizations based on race
are valid. At the same time, the decision foreclosed a private right of
action to enforce these regulations. As a result of this decision,
individuals and organizations seeking redress from disparate impact
discrimination under Title VI are limited to filing administrative
complaints with the DOT and its modal administrations requesting that
their recipients or subrecipients comply with disparate impact
prohibitions. The result is that Sandoval increases the likelihood that
DOT, its modal administrations, and its recipients and subrecipients
will be subjected to administrative complaints.
In order to resolve such complaints, recipients of FTA funds and
the general public would benefit from guidance clarifying what steps
they should take to demonstrate that their programs, policies, and
activities do not result in disparate impact on the basis of race,
color, or national origin.
Additionally, FTA is revising the Title VI Circular to eliminate
outdated nomenclature, such as references to FTA as the ``Urban Mass
Transit Administration'' and to statutes such as the ``Urban Mass
Transit Act'' and the ``Federal Aid Urban System Program.''
II. What Factors Informed FTA's Revisions to the Title VI Circular?
Before revising and updating the Title VI Circular, FTA took into
consideration the following information:
DOT Title VI Regulations at 49 CFR Part 21
The primary objective of the Title VI Circular is to provide
guidance and instructions to ensure that recipients of FTA funding
comply with DOT Title VI regulations. To this end, FTA reviewed the
regulations at 49 CFR part 21 for ambiguous or open-ended provisions.
For example, 49 CFR 21.5(b)(7) states that `` * * * even in the absence
of prior discriminatory practice or usage, a recipient * * * is
expected to take affirmative action to assure that no person is
excluded from participation in or denied the benefits of the program or
activity on the grounds of race, color, or national origin.'' However,
neither the regulations nor the appendix specify what types of actions
would meet the expectations of this provision. Likewise, the broader
provision at 49 CFR 21.5(b)(2) that prohibits recipients from
``utilizing criteria or methods of administration which have the effect
of subjecting people to discrimination on the basis of their race,
color, or national origin * * *'' is silent on procedures that
recipients should use to identify and guard against discriminatory
effects. Recipients would benefit from clear expectations on how to
respond even to the relatively narrow requirement at 49 CFR 21.9(b)
that ``* * * recipients should have available for the Secretary racial
and ethnic data showing the extent to which members of minority groups
are beneficiaries of programs receiving Federal financial assistance.''
The proposed circular would provide guidance and procedures for these
provisions to assist compliance with the specific provisions in the DOT
Title VI regulations.
[[Page 40180]]
Title VI Guidance External to the Department of Transportation
Prior to revising the Title VI Circular, FTA reviewed guidance from
the DOJ's ``Civil Rights Division Legal Manual on Title VI,'' the DOJ
``Investigation Procedures Manual for the Investigation and Resolution
of Complaints Alleging Violations of Title VI and Other Non-
Discrimination Statutes,'' and the Council on Environmental Quality
(CEQ)'s ``Environmental Justice Guidance under the National
Environmental Policy Act.'' The proposed Circular is consistent with
the legal principles and procedures described in those manuals. The
Circular's guidance on integrating Title VI and environmental justice
analysis into recipients' NEPA documents is consistent with the CEQ
guidance.
Concurrent Rulemaking Processes
FTA and the Federal Highway Administration (FHWA) are in the
process of revising the planning regulations for State Departments of
Transportation (State DOTs) and Metropolitan Planning Organizations
(MPOs) at 23 CFR part 450. Since these regulations inform State DOTs
and MPOs on how to comply with Title VI, the proposed Circular would
suspend issuing detailed Title VI guidance for these recipients and
subrecipients of FTA funding. FTA will provide more detailed guidance
after the final planning regulations are issued in 2007.
Complaints and Lawsuits Generated Since the Circular's Last Revision
One of the objectives of the Title VI Circular is to provide
guidance that, if implemented, would reduce the risk that grantees
would be subjected to Title VI administrative complaints or to
litigation. To this end, FTA reviewed past Title VI administrative
complaints filed with FTA and Title VI lawsuits, including cases
summarized in The Impact of Civil Rights Litigation Under Title VI and
Related Laws on Transit Decision-Making (Transit Cooperative Research
Program Legal Research Digest, June 7, 1997).
Title VI complaints filed with FTA since 1995 include allegations
that:
Recipients provided a lower level and quality of service
to minority riders using recipients' bus services than to white riders
using recipients' rail services;
Service and fare changes implemented by recipients had
adverse and disproportionate impacts on minority populations; and
Recipients disproportionately sited disruptive or
polluting facilities such as busways, rail lines, and bus depots in
predominantly minority and low-income communities, and sited clean fuel
vehicles and facilities in predominantly white or more affluent
communities; and recipients did not offer people with LEP the
opportunity for involvement in decision-making.
Title VI litigation filed against transit agencies or MPOs include
allegations that:
Recipients favored the construction of roads and highways
over the provision of public bus transportation;
Recipients required primarily minority passengers to pay
toward the operation of the commuter rail system;
Recipients increased fares and eliminated passes for bus
riders who are predominantly minority and poor, while allocating funds
to construct rail lines designed to serve a predominantly white and
relatively affluent community; and
Recipients funded transit service serving predominantly
white and relatively affluent communities to a greater extent than
transit service provided to predominantly minority and low-income
communities.
FTA determined that administrative complaints and litigation were
filed in response to how recipients had allocated or structured their
service and fares. The proposed Circular would include
nondiscrimination guidance on these matters.
Recommendations of the Government Accountability Office (GAO)
The proposed Circular would respond to the recommendations of a
recent GAO report that analyzed how DOT and its recipients were
providing language access to people with LEP. On November 2, 2005, GAO
issued ``Better Dissemination and Oversight of DOT's Guidance Could
Lead to Improved Access for Limited English-Proficient Populations.''
GAO was charged with investigating: (1) The language access services
that transit agencies and MPOs have provided, and the effects and costs
of these services; (2) how DOT assists its grantees in providing
language access services; and (3) how DOT monitors its grantees'
provision of these services.
The GAO report recommended that the Secretary of DOT: (1) Ensure
that DOT's revised LEP Guidance is distributed to all DOT grantees; (2)
consider providing additional technical assistance to grantees in
providing language access; and (3) more fully incorporate the revised
guidance in current review processes, and establish consistent norms
for what constitutes a language access deficiency.
In response to the report's third recommendation, the proposed
Circular would reference the DOT LEP Guidance. It would instruct all
recipients and subrecipients to follow the procedures in that document.
Title VI compliance reviews conducted after the proposed Circular is
issued will assess whether or not recipients and subrecipients have
followed the DOT LEP Guidance.
Changes in Industry Practices Since the Circular's Last Revision
Prior to issuing the proposed Circular, FTA reviewed changes in
industry practices since the Circular was last updated in 1988. FTA
intends to ensure that recipients can comply with revised guidance
using policies and procedures that are already incorporated into their
business practices. The use of Geographic Information Systems (GIS) by
transportation providers is an example of a recently-adopted industry
practice that can assist recipients in complying with Title VI.
According to the Transportation Cooperative Research Program Synthesis,
GIS Options in Transit (Transit Cooperative Synthesis Project, December
2004), close to 80% of transit agencies surveyed used GIS technology in
2003. Agencies used GIS frequently for Title VI activities. Several
provisions of the proposed Circular would allow a recipient or
subrecipient to demonstrate compliance with Title VI by overlaying
their services on a demographic map of their service area. Using these
maps, recipients can determine if resources are distributed equitably
to minority, low-income, and LEP populations.
FTA also reviewed changes in industry practices to ensure that
administrative activities widely adopted since 1988 would not
disparately impact groups based on race, color, or national origin.
Changes in industry practice with Title VI implications include
measures to promote transit security and the development of intelligent
transportation systems (ITS). In recent years, transit agencies have
increased their security preparedness. Transit agencies, in cooperation
with and supported by FTA have conducted risk and vulnerability
assessments, created emergency preparedness plans, implemented safety
and security awareness programs designed to encourage the active
participation of transit passengers and employees in maintaining a safe
transit environment, and conducted employee education and training,
among other important measures. In a few metropolitan regions,
primarily in New York City, officials have begun random screenings of
passengers entering transit systems.
[[Page 40181]]
FTA seeks to ensure that these and other security activities are
carried out based on objective criteria and are implemented without
regard to race, color, or national origin. The proposed Circular would
recommend that recipients serving urbanized areas of 200,000 persons or
greater establish system-wide service standards for transit security
and ensure that they are implemented in a nondiscriminatory way.
In addition, ITS technology such as vehicle arrival information
systems, automatic stop announcement systems, and electronic fare
payment are being implemented by many transit providers and should also
be provided without regard to race, color, or national origin. Other
technology such as passenger counters and automatic vehicle locators
can assist the recipient in ensuring that their level and quality of
service is provided equitably. The proposed Circular would include
provisions to ensure the equitable distribution of ITS and allow
recipients to use ITS to comply with Title VI.
Results of FTA Title VI Oversight
The proposed Circular would incorporate lessons learned from
triennial reviews and discretionary Title VI compliance reviews
conducted over the past three years. FTA reviewed the results of its 25
discretionary compliance reviews of transit agencies, MPOs and State
DOTs conducted since 2002. It also reviewed Title VI portions of
triennial reviews conducted since 2002.
In these reviews, FTA found the greatest number of deficiencies in
the following areas:
Failure to submit Title VI information to FTA;
Failure to develop internal procedures and guidelines for
monitoring compliance with Title VI; and
Failure to conduct level and quality of service
monitoring.
In some cases, recipients failed because they found provisions in
the existing Circular to be ambiguous or difficult to implement.
The proposed Circular would clarify what Title VI information
should be reported to FTA. The final Circular would also include
examples of effective compliance practices.
Public Comments to the Docket
The proposed Circular would incorporate comments received in
response to FTA's notice and request for comments, published in the
Federal Register on December 15, 2005 (70 FR 74422). In this notice,
FTA sought input from interested parties on the existing Circular,
including examples of problems with compliance, best practices for
compliance, and proposals for changes.
To date FTA has received 24 comments on the notice from transit
agencies, MPOs, State DOTs, trade associations, and individuals.
Commenters expressed views on the following provisions of the existing
Circular:
1. Objectives of the Title VI Circular
Four individuals or organizations commented on the objectives of
the existing Circular, which are included in Chapter I of Circular
4702.1. One commenter stated that the revised Circular should include a
more detailed discussion of Title VI and specify that the
implementation and administration of Title VI is a prime organizational
responsibility. This commenter stated that the revised Circular should
clarify the distinction between Title VI and Title VII and that the
Circular should discuss the importance of providing equitable customer
service and how doing so positively impacts the achievement of a
recipient's organizational objectives.
Another commenter stated that the Circular's objective of comparing
transit services in minority versus nonminority communities
insufficiently evaluates how a transit agency distributes its
resources, and that transit resources should be distributed according
to transit propensity--the likelihood of an area to utilize transit
services. The commenter suggested that transit agencies be given the
chance to explain the factors (such as car ownership, income, and
density) that dictate how they distribute resources, and then compare
the level and quality of services provided to minority and nonminority
areas.
A third commenter stated that the existing Circular lacks
sufficient procedural guidelines for implementing agencies.
Another commenter suggested that ``zero car populations'' should be
allowed to benefit from FTA assistance.
In response to these comments, the proposed Circular would include
a description of the Title VI regulations at 49 CFR Part 21. The
proposed Circular would also provide more detailed procedural
guidelines in both the ``General Guidance'' and ``Program Specific
Guidance'' chapters relating to recipients' larger organizational
objectives. It would allow recipients to describe how their resources
are distributed on the basis of race-neutral factors such as population
density and expressed need for transit services.
The proposed Circular would not specifically require recipients to
provide benefits to ``zero car populations.'' However, the Circular's
guidance, once implemented, would help recipients ensure equitable
service to predominantly minority, low-income, and LEP populations,
i.e., insofar as these populations are disproportionately without
vehicles, the Circular should help ensure that they are equitably
served by grant recipients.
2. Definitions
Eight individuals or organizations commented on the list of defined
terms in the existing Circular (Chapter I, Part 3 of Circular 4702.1).
One commenter stated that the Circular's definition of ``minority or
minority group persons'' was out of date, per the United States Census'
new definition of race. Another commenter remarked that the race
categories could lead a person to be counted twice, specifically in the
categories of two or more races. Other commenters suggested that the
Circular's definition of travel time be made consistent with the
definition used by FTA under DOT's ADA regulations--pointing to terms
in the ``Definitions'' section that were not included in the body of
the Circular. Another commenter suggested new definitions for the terms
``recipient'' and ``subrecipient.''
Another commentator noted that the existing Circular does not
define ``discrimination'' and suggested that revised definitions of
discrimination be categorical (i.e., intentional and unintentional
forms that result in disparate impact or inequitable treatment of
organizational customers) and race neutral (i.e., show how an
organization that focuses on delivering quality service to all
customers consequently removes discriminatory impediments).
Several commenters stated that the existing Circular's definition
of ``minority transit route,'' which is defined as ``a route that has
at least \1/3\ of its total route mileage in a Census tract or traffic
analysis zone with a percentage of minority population greater than the
percentage of the minority population in the transit service area'' may
not accurately reflect the demographics of the populations that use or
are served by those routes. Commenters proposed modifying this
definition to one based on the route's actual ridership or a more
precise analysis of the areas served by the route.
In response to these comments, the proposed Circular would adopt a
[[Page 40182]]
definition of ``minority persons'' using the race categories as defined
by the 2000 Census. Under the proposed circular's definition of
``minority persons.'' some people may be counted twice; however,
provided that the recipient analyzes all of its service area according
to the new definition of ``minority persons,'' the recipient should
arrive at consistent results.
The proposed Circular would define only those terms and concepts
that are included in the document's ensuing chapters. If a term is not
included in the definitions section, recipients and subrecipients
should rely on common usage or industry standards to define the term.
For example, the existing Circular's definition of ``travel time,''
which is used to evaluate the quality of a recipient's service to
minority and non-minority areas, requires all recipients to calculate
travel time using a riding speed of 25 mph. The new Circular would not
provide a standard calculation for travel time, but would instead allow
recipients to base this calculation on their knowledge of their system
and local factors.
Likewise, the proposed Circular would not include a definition for
``minority transit route.'' It would advise recipients to determine the
effects of programs, policies, and activities on minority (and low-
income) groups using demographic information in ridership surveys and
the U.S. Census, as circumstances warrant. For example, a recipient
that proposes fare increases on its bus and rail service might review
the results of ridership surveys to determine whether minority or low-
income people are disproportionately represented on any one mode of
transit service. A recipient or subrecipient proposing to eliminate
transit routes would examine ridership surveys, but also review Census
information on the areas served by these routes to understand the
demographics of the communities that would lose service. A recipient
studying alternatives for constructing a new transit route would review
Census data for the areas that would be served by the project and also
those areas bisected by the project to better understand the benefits
and burdens of the project for specific groups.
The proposed Circular would include a definition of ``recipient,''
``subrecipient,'' and ``discrimination'' that are consistent with these
terms as defined by statute.
3. Title VI Assurances
The existing Circular requires applicants, recipients, and
subrecipients to submit a signed civil rights assurance and a signed
DOT Title VI assurance that all records and other information required
by the Circular have been and would be completed by the applicant,
recipient, or subrecipient (Chapter III, Parts 2(d) and 2(e) of
Circular 4702.1).
Two individuals or organizations commented on this provision. One
commenter noted that since 1995, FTA has used one form that compiles
all certifications and assurances of compliance with applicable Federal
requirements and that this form is completed by grantees and submitted
on an annual basis.
Another commenter suggested that FTA clarify that recipients submit
a Title VI assurance each time there is a change in the recipient's
leadership.
In response to these comments, the proposed Circular would allow
applicants to submit the annual standard assurance form that compiles
all certifications and assurances in lieu of submitting specific Title
VI assurance forms. This annual submittal would ensure that an
applicant's new leadership would certify compliance with Title VI as
well as other FTA requirements.
4. Fixed Facility Impact Analysis
The existing Circular requires all applicants, recipients, and
subrecipients to conduct a fixed facility impact analysis to assess the
effects of construction projects on minority communities and specifies
the information to be collected for this analysis. If this information
has been prepared as part of an Environmental Assessment (EA) or
Environmental Impact Statement (EIS), the applicant, recipient, or
subrecipient should refer to the relevant information (Chapter III,
Part 2(f) of Circular 4702.1).
Three individuals or organizations commented on this provision. One
commenter recommended that FTA incorporate guidance that fixed facility
impact analyses also be conducted for those construction projects
subject to documented Categorical Exclusions under parts (b) and (d) of
DOT NEPA regulations at 23 CFR 771.117. (This guidance was previously
provided to the commenter during a prior Title VI compliance review.)
Another commenter suggested that recipients conduct fixed facility
impact analyses for those construction projects not subject to an EA
and EIS and that local communities be given the opportunity to verify
or rebut information provided on these construction projects. The
commenter also suggested that data requirements regarding fixed
facilities may be different for passenger facilities compared to
administrative and/or maintenance facilities and relevant reporting
requirements should be tailored to the impact on the residents and
transit providers.
A third commenter asked whether the existing Circular's references
to an EA or EIS are equated to the physical environment or equated to
environmental justice communities.
In response to these comments, the proposed Circular would clarify
that recipients should assess the impacts to minority and low-income
populations of construction projects subject to a Categorical Exclusion
type (d) (``a documented categorical exclusion''), Environmental
Assessment, or Environmental Impact Statement. Recipients may fulfill
this requirement by including the steps described in the environmental
justice analysis section of the proposed circular section in their NEPA
process and documentation, and submitting the appropriate section of
the Environmental Impact Statement, Environmental Assessment, or
application for a Documented Categorical Exclusion to FTA.
The NEPA regulations at 23 CFR 771.117(d) state that, for certain
projects, applicants shall submit documentation that demonstrates that
criteria for these Categorical Exclusions are satisfied, and that
significant environmental effects would not result. Examples of these
projects, as cited in the regulations, include construction of new bus
storage and maintenance facilities in areas used predominantly for
industrial and transportation purposes, rehabilitation or
reconstruction of existing rail and bus buildings where only minor
amounts of additional land are required and there is not a substantial
increase in the number of users, and construction of bus transfer
facilities when located in a commercial area or other high activity
center in which there is adequate street capacity for projected bus
traffic. Under the proposed Circular, recipients planning these and
other projects that fall within 23 CFR 771.117(d) would submit, as part
of their documentation to receive a Categorical Exclusion, an
assessment of the project's impacts on minority and low-income
communities.
Under the proposed Circular, recipients and subrecipients would not
be required to assess the impacts on minority and low-income
communities of those construction projects listed at 23 CFR 771.117(c).
These projects do not require any NEPA approvals by FTA. They include
approval of utility installations along or across a transportation
facility, the installation of noise barriers, landscaping, acquisition
of scenic easements, and other projects
[[Page 40183]]
enumerated in this provision of the NEPA regulations.
Also under the proposed Circular, recipients and subrecipients
would not be required to assess the impacts on minority and low-income
populations of those construction projects that do not significantly
change the use, design, scale, or footprint of the facility.
The proposed Circular would not establish different procedures for
analyzing the effects on minority and low-income populations of
passenger facilities compared to administrative and/or maintenance
facilities, nor would the proposed Circular alter recipient's existing
public participation obligations under NEPA.
5. Program Specific Reporting Requirements
The existing Circular provides program-specific requirements for
applicants, recipients, and subrecipients that provide public transit
service primarily in service areas with populations over 200,000, as
well as for State DOTs and MPOs (Chapter III, of Circular 4702.1).
One organization commented on this framework. The organization
suggested that FTA consider reduced reporting requirements for
recipients/public transit service providers that have a significant
minority population. The commenter also recommended that FTA reduce the
data collection and reporting burden on public transit service
providers that they determine to be ``low risk.''
The proposed Circular would not take the approach suggested in this
comment. Recipients serving areas with significant minority populations
could be more sensitive to issues of discrimination on the basis of
race, color, and national origin, and, therefore, less likely to
violate Title VI, but the results of triennial reviews and Title VI
compliance reviews conducted since 2002 demonstrate no relationship
between the size or proportion of a recipient's minority population and
the number of Title VI deficiencies found.
6. Demographic and Service Profile Maps, Overlays, and Charts
The existing Circular requires transit providers serving areas with
populations over 200,000 to prepare demographic and service profile
maps, overlays, and charts detailing the recipient's service area and
overlaying the transit service provided and the location of
concentrations of minority people within the service area (Chapter III,
Part 3(a)(1) of Circular 4702.1).
Two individuals or organizations commented on this provision. One
commenter stated that the Circular's existing requirement to prepare a
base map showing major activity centers or transit trip generators,
such as the central business district, outlying high employment areas,
schools, and hospitals, might not accurately capture other major
activity centers. Stores and childcare facilities may also be
appropriate to include as additional locales. The commenter also asked
how paratransit availability and usage fit in to reporting
requirements.
The second commenter suggested that in addition to preparing maps,
overlays, and charts, recipients also should provide the following
information: A comparison of the demographics of minority and
nonminority riders using different modes, information on trip purposes
by minority riders during peak and off-peak times, the percentage of
system-wide trips taken by minority riders, the percentage of minority
riders who are transit dependent and the overall percentage of system-
wide trips made by people who are transit dependent, the percentage of
system-wide trips made by bus versus rail, and a comparison of minority
and nonminority opinions concerning system performance, overall
satisfaction, willingness to recommend transit to others, product
awareness, and value for fare paid.
In response to these comments, the proposed Circular would retain
the requirement to map major activity centers and transit trip
generators. However, the Circular specifies that this list should be
locally determined and can include, but need not be limited to, the
central business district, outlying high employment areas, schools, and
hospitals.
The proposed Circular would also recommend that recipients who meet
the program-specific threshold collect information on the race, color,
national origin, and income, and travel pattern of its riders
(consistent with the specific information requests proposed by the
commenter). This information can be integrated into customer surveys
routinely performed by transit agencies.
7. Service Standards and Policies
The existing Circular requires transit providers that serve areas
with populations over 200,000 to establish system-wide service policies
and standards related to Title VI (Chapter III, Part 3(a)(2) of
Circular 47021.).
Three individuals or organizations commented on this provision. One
commenter requested that the revised Circular provide guidance on how
to develop service standards for transit access, vehicle assignment,
and level of service for commuter rail, and clarify how to determine
maximum load points for fixed route bus service. Another commenter
stressed that recipients should be required to establish a service
standard only for those transit amenities that are under the direct
responsibility of the recipient. A third commenter suggested that some
measure of transit affordability should be added to the indicators
identified under service standards and policies.
In response, the proposed Circular's discussion of service
standards and policies would provide guidance that would enable
recipients operating commuter rail service to set system-wide standards
for transit access and vehicle assignment. The revised guidance would
discuss how recipients can determine maximum load points for vehicle
load. The revised Circular would also specify that transit amenities
not directly under the control of the recipient, such as bus stops and
shelters that are established and maintained by a local municipality,
would not be subject to a service standard by the recipient.
The proposed Circular would not include a service standard for
transit affordability, but would not prevent recipients from setting
such a standard if they consider it appropriate. For example,
recipients could price their fares so that the total cost to the rider
of using the system on a frequent basis does not exceed a certain
percentage of the average household income in the service area.
However, this standard could mean that recipients would need to raise
and lower fares as new information about household income or expenses
is published, and such a policy would likely collide with a recipient's
other strategic, financial, or functional objectives.
The revised Circular would require recipients serving urbanized
areas with populations of 200,000 or greater to identify and address,
as appropriate, disproportionate and adverse impacts of proposed fare
increases on minority and low-income people and attempt to minimize or
mitigate the effects of proposals by which price-sensitive consumers
would bear the brunt of a fare increase.
8. Assessment of Compliance by Grantees
The existing Circular requires that transit systems serving areas
with populations over 200,000 develop procedures and guidelines for
monitoring compliance with Title VI. (Chapter III Part 3(a)(3) of
Circular 4702.1).
[[Page 40184]]
One organization commented on this provision. The commenter
recommended that transit providers be instructed to undertake Title VI
compliance assessments on an ongoing basis as policies change, so that
transportation providers assess policies as they are being developed,
and well in advance of implementation. The commenter also noted that
the existing Circular provides no threshold definition for a system-
wide service change or a disproportionate impact. Transportation
properties would benefit from specific guidelines about thresholds.
In response to this comment, the proposed Circular would ask
recipients to evaluate significant system-wide service and fare changes
and proposed improvements at the planning and programming stages to
determine whether the overall benefits and costs of such changes are
distributed equally, and are not discriminatory. In addition, the
environmental justice analysis of construction projects requested by
the proposed Circular and typically prepared as part of the NEPA
process would be prepared and submitted to FTA well in advance of
project construction.
The proposed Circular would not set a single threshold for the
magnitude of a service change that would trigger recipients to study
the impacts of the change. However, it would advise recipients to
establish guidelines or thresholds for what they consider a ``major''
change to be. Often, this is defined as a numerical standard, such as a
change that impacts 25% of the service hours of a route.
9. Information Dissemination
The existing Circular requires transit systems that serve areas
with populations over 200,000 to describe the methods used to inform
minority communities of service changes related to transit service and
improvements (Chapter III, Part 3(a)(4)(b) of Circular 4702.1).
Two individuals or organizations commented on this provision. One
commenter remarked that transportation properties would benefit from
hearing from other transportation properties that employ non-
traditional methods to engage communities of color in the decision-
making process. The second commenter remarked that the existing
Circular establishes no set thresholds for information dissemination.
In response to these comments, FTA will consider including in the
final draft of the Title VI Circular a list of effective practices used
by recipients to engage minority, low-income, and LEP populations in
decision-making processes. The proposed Circular would also include
examples of measures targeted to overcome linguistic, institutional,
cultural, economic, historical, or other barriers that may prevent
minority and low-income individuals and populations from effectively
participating in a recipient's decision-making process.
The proposed Circular would not set a threshold for what type or
magnitude of service changes would require the agency to disseminate
information or involve the public (including minority, low-income, and
LEP populations); however, the proposed Circular would cite examples of
activities where public involvement is required or frequently
conducted.
10. Minority Representation on Decision-Making Bodies
The existing Circular requires transit systems that serve areas
with populations over 200,000 to provide a racial breakdown of transit-
related non-elected boards, advisory councils, or committees, and to
describe efforts made to encourage minority participation (See Chapter
III, Part 3(a)(4)(c) of Circular 4702.1).
Three individuals or organizations commented on this provision. One
commenter stated that the existing Circular does not ask whether the
racial composition of non-elected boards, advisory councils, or
committees benefits minority and low-income committees. A second
commenter stated that racial diversity among board members does not
guarantee representation of an affected communities' issues. The
commenter suggested that transportation properties might provide
information regarding each members' networks and relationships with
affiliated communities. A third commenter suggested that FTA establish
a threshold for representation on boards. For example, if a minority
population represents 51% of the customer base, then a member of this
population should be allocated a board seat.
The proposed Circular would not set quotas for membership on
recipients' boards, advisory councils, or committees because the
process for selecting members to these committees is a local
prerogative. The proposed Circular would also contain general guidance
on the obligations of State DOTs and MPOs to engage minority and low-
income communities in the planning process. FTA remains interested in
efforts undertaken by recipients to encourage minority participation on
its boards, advisory councils, and committees. FTA's Equal Employment
Opportunity Circular, which is currently being revised and updated, may
consider guidance on this provision.
11. Multilingual Facilities
The existing Circular requires transit systems that serve areas
with populations over 200,000 to provide a description of the extent to
which bilingual speakers or materials are or would be used to assist
non-English speaking people who want to use the transit system (See
Chapter III, Part 3(a)(4)(d) of Circular 4702.1).
Four individuals or organizations commented on this provision. All
commenters stated that the DOT LEP Guidance should be incorporated into
the revised Circular. One commenter also suggested that the revised
Circular include strategies to overcome cultural barriers related to
LEP.
In response to these comments, the proposed Circular would request
that all recipients and subrecipients follow the instructions in the
DOT LEP guidance. The proposed Circular would also include examples of
measures to overcome institutional, cultural, economic, historical, or
other barriers that may prevent LEP populations from participating in a
recipient's public involvement process. FTA will consider including in
the final draft of the Circular a list of effective practices used by
recipients to address cultural barriers related to LEP.
12. Requirements for Metropolitan Planning Organizations
The existing Circular requires MPOs to undertake data collection
and reporting requirements to ensure compliance with Title VI (Chapter
III, Part 3(b) of Circular 4702.1).
Two individuals or organizations commented on this provision. One
commenter suggested that the MPO provisions of the existing Circular be
reviewed. A second commenter stated that it would be helpful to have
guidance on what the Executive Order on Environmental Justice requires
from the MPO planning process. The Circular could provide useful
guidance on effective methodologies, the frequency and means of
analysis, and the reporting principles required of grantees for the
triennial Title VI reports.
FTA intends to work with the Federal Highway Administration (FHWA)
to issue more specific guidance on the incorporation of Title VI and
environmental justice principles into the metropolitan and statewide
planning processes after FHWA has issued revisions to its planning
[[Page 40185]]
regulations at 23 CFR 450 (the rulemaking process for these regulations
is currently underway and DOT expects to issue a final rule in 2007).
In order to avoid conflicts between the guidance for MPOs in the
revised Circular and in the revised planning rule, the proposed
Circular would issue general interim guidance on how MPOs should comply
with Title VI.
13. Requirements for State DOTs
The existing Circular contains program-specific requirements for
State agencies administering transit programs for elderly individuals,
individuals with disabilities, and individuals living in rural and
small urban areas. State agencies are required to ensure that their
subrecipients are in compliance with Title VI requirements and
demonstrate that subrecipients were selected for funding in a non-
discriminatory manner (Chapter III, Part 3(c) and 3(d) of Circular
4702.1).
Two individuals or organizations commented on these provisions. One
commenter asked whether transit activities administered by State DOTs
and funded with monies transferred from the FHWA will be subject to
Title VI requirements. The commenter also noted that the existing
Circular does not cover programs funded through the Job Access Reverse
Commute grant program or the New Freedom grant program.
The second commenter recommended that FTA consider providing
conditional approvals for Title VI submissions from State DOTs while
these submissions are being reviewed and approved by the FHWA. The
commenter also suggested that FTA and FHWA work together to assist
State DOTs to eliminate the problem of having FTA suspend a grant while
FHWA reviews the recipient's Title VI submission.
In response to these comments, the proposed Circular would clarify
that any recipient or subrecipient of funds administered by FTA shall
comply with the Title VI guidance contained in this Circular. The
proposed Circular would also require State DOTs to submit directly to
FTA all Title VI information related to programs funded by FTA and
administered by the State DOT (such as transportation grants for
seniors and people with disabilities and grants for rural
transportation). This information would no longer be reviewed and
approved by a representative from FHWA.
The proposed Circular also would include general interim guidance
for statewide planning. In order to avoid conflicts between the
guidance in this area in the revised Circular and the revised planning
rule, the proposed Circular issues general interim guidance on how the
Statewide planning process should comply with Title VI.
14. Level and Quality of Service Monitoring
The existing Circular requires all grantees that provide public
transit service to develop and implement procedures to monitor
compliance with Title VI (Chapter IV Part (2) of Circular 4702.1).
Three individuals or organizations commented on this provision. One
commenter noted that any level and quality of service methodology
should analyze a numerically sufficient and demographically different
number of Census tracts or traffic analysis zones. Monitoring
procedures that require recipients to compare travel times from
different areas to frequently traveled destinations should not identify
solely those travel destinations used for work-related purposes.
A second commenter suggested that FTA provide templates, samples,
or models to assist recipients with a consistent way to report
information such as monitoring levels and quality of service and
compliance assessment.
In response to these comments, the proposed Circular would request
that recipients subject to level and quality of service monitoring
identify the most frequently traveled destinations for riders using the
recipient's service and, for each of these destinations, compare the
average peak hour travel time to destination, average non-peak hour
travel time to destination, number of transfers required to reach the
destination, total cost of trip to the destination, and cost per mile
of trip to the destination for people beginning the trip in the
selected Census tracts or traffic analysis zones. The most frequently
traveled destinations could include, but need not be limited to,
destinations that are work-related. The proposed Circular would also
encourage recipients to conduct statistical tests for significance on
the results of their level and quality of service monitoring.
In addition, FTA will consider including in the final draft of the
Circular a list of effective practices used by recipients to monitor
level and quality of service.
15. Compliance Reviews
Chapter V of the existing Circular describes how FTA monitors
compliance of applicants, recipients, and subrecipients with Title VI.
This chapter includes descriptions of the type of compliance reviews
FTA will conduct. It also includes FTA's criteria and procedures to
determine compliance with Title VI.
Three individuals or organizations commented on the provisions in
this chapter. One commenter requested that FTA provide clear, specific
guidance about the compliance review process, including information on
types of reviews, remedial actions, and appeals. They recommended that
flow charts would help illustrate FTA's expectations in these areas.
A second commenter stated that triennial reviews are too infrequent
to monitor recipients' compliance with the Title VI Circular. The
commenter also recommended that FTA complete a review of a recipient's
process. Another commenter suggested that Title VI reviews should be
conducted by staff from FTA regional offices, rather than by national
consultants who are not familiar with local issues, cultures, or
populations. The commenter suggested that if consultants are used, they
should have experience with the program areas that they are reviewing.
Consultants who specialize in transportation in large metropolitan
areas should not conduct reviews of transit service provided to rural
areas. The commenter additionally stated that compliance reviews should
be conducted so that all State DOTs are reviewed periodically rather
than having one State DOT reviewed multiple times, and FTA's
investigative reports should also be subject to a specific timeline.
The commenter also suggested that FTA provide examples of best
practices from State DOT review forms for local providers.
In response to these comments, the proposed Circular would provide
information on the criteria for selecting recipients and subrecipients
for compliance reviews and the process recipients should follow to
correct deficiencies identified in the reviews. The proposed Circular
would provide information on remedial actions and appeals in its
section on enforcement procedures.
FTA reiterates its flexibility to determine, on a case-by-case
basis, whether a Title VI desk audit or on-site review is warranted;
whether the review should be conducted via consultants, FTA regional
staff, or headquarters staff; what recipients and subrecipients should
be subject to a review; and the timing of the release of the draft and
final reports. As such, the proposed Circular will not include specific
procedures in these areas.
Nothing in this Circular would authorize FTA to alter the triennial
review structure, which is mandated by Federal law. However, recipients
may be subject to a discretionary Title VI
[[Page 40186]]
review in the years in between their triennial reviews.
16. Enforcement Procedures
Chapter VI of the existing Circular describes the procedures and
requirements for initiating remedial actions in cases of noncompliance
and probable noncompliance with Title VI and summarizes FTA's
enforcement procedures when a grant applicant, recipient, or
subrecipient refuses or fails to comply voluntarily with remedial
measures.
Four individuals or organizations commented on the provisions in
this chapter. One commenter questioned whether the guidance contained
in the Title VI Circular is binding on recipients and requested that
FTA clarify the existing and revised Circular's actual enforceability.
The commenter also noted that clarity on the enforcement of the Title
VI Circular is particularly critical in light of the Supreme Court's
decision in Alexander v. Sandoval, which held that there is no private
right of action to enforce the disparate impact regulations promulgated
under Title VI. The commenter stated that the existing Circular's
provisions relating to enforcement, oversight, or decisions made by the
Secretary of Transportation do not appear to be followed with any
regularity.
Other commenters suggested that FTA update its enforcement
procedures so that applicants or recipients have 90 days to correct
deficiencies, and stated that there should be more clearly defined
procedures for identifying violations of Title VI compliance and taking
preventive measures.
Another commenter suggested that FTA clarify whether the Secretary
can disagree with the results of an enforcement hearing and what
procedure would be followed under that scenario.
In response to these comments, the proposed Circular would clarify
that FTA would view recipients or subrecipients' failure to comply with
one or more portions of the Circular's guidance would be a failure to
comply with DOT Title VI regulations. For example, the Title VI
Regulations at 49 CFR 21.9(b) require recipients to have available for
the Secretary racial and ethnic data showing the extent to which
members of minority groups are beneficiaries of programs receiving
Federal financial assistance. In order for recipients serving
populations of 200,000 people or greater to fulfill the requirement at
section 21.9(b), the Circular would instruct these recipients to
prepare and submit demographic service maps and overlays and
demographic information obtained from ridership surveys. If the
recipient does not prepare and submit this information, it would be
considered deficient in its compliance with 49 CFR 21.9(b) unless the
recipient could provide FTA with an adequate justification.
FTA will consider a grantee to be non-compliant with the DOT Title
VI regulations if, after an investigation of a recipient or
subrecipients' practices, FTA determines that the entity has engaged in
a pattern or practice of activities that have had the purpose or effect
of denying people the benefits of, excluding them from participation
in, or subjecting people to discrimination under the recipients'
program or activity on the basis of race, color or national origin.
In addition, the proposed Circular would clarify the timelines that
would be used for correcting deficiencies and implementing protective
measures.
17. Complaint Procedures
Chapter VII of the existing Circular provides information on FTA
procedures for filing complaints alleging discrimination on the basis
of race, color, or national origin. Six individuals or organizations
commented on the provisions of this chapter. One commenter remarked
that recipients are not following the existing Circular's complaint
procedures, and that the revised Circular should identify an appeals
process that an aggrieved individual or complainant can follow.
A second commenter suggested that the complaint provisions be
updated to better define the responsibility of State DOTs to process
Title VI complaints. Another commenter suggested that FTA provide
timely notification to a recipient who has been the subject of a
complaint, and provide the recipient with a copy of the complaint so
that it may respond. Another commenter noted that there is little
public awareness of the Circular's policy that recipients must
advertise its complaint procedures to the public.
Other commenters suggested that only those complaints with adequate
information should be accepted for investigation, and FTA should
clarify the amount of time allowed between FTA's acceptance of a
complaint and the submission of the investigative report. Another
commenter stated that the revised Circular should require recipients to
designate a Title VI coordinator to respond to complaints, conduct
training, perform internal compliance reviews, and handle
administrative tasks. Further, the commenter suggested that Title VI
complaints should be regarded as violations in the quality of service
that programs, activities, or services give to customers who are
internal or external to the organization.
Because the proposed Circular is intended to be used by FTA
grantees, the Circular's chapter on complaint procedures focuses on how
FTA will interact with a recipient or subrecipient that has been
subject to a Title VI complaint. FTA will engage in a separate effort
to inform the public of its procedures for accepting and investigating
Title VI complaints.
The procedures in the proposed Circular would specify an appeals
process, provide timely notice to complainants and recipients that FTA
has accepted a complaint for investigation, and would allow recipients
to receive a copy of the complaint, unless the complainant wishes FTA
to withhold specific information from the recipient.
Because Title VI complaints vary widely in their complexity and the
length of time required to complete a thorough investigation, the
proposed Circular would not include a specific timeframe for resolving
all complaints. However, FTA is required by 49 CFR 21.11 to make a
prompt investigation whenever information suggests a possible failure
to comply with the regulations. The proposed circular would state that
FTA strives to complete its investigation of complaints (either through
administrative close or by issuing letters of resolution or finding)
within 180 days of the date that FTA accepts a complaint for
investigation.
Comments related to notifying the public of their right to file a
Title VI complaint are addressed in the ``General Reporting
Requirements'' in Chapter IV of the proposed Circular.
18. Miscellaneous Comments
In addition to commenting on specific provisions of the existing
Title VI Circular, commenters expressed opinions on the following
matters related to Title VI:
A. Environmental Justice
Five individuals or organizations commented on the relationship
between Title VI and the Executive Order and DOT Order on Environmental
Justice. All commenters recommended that FTA integrate environmental
justice principles and requirements into the revised Circular. In
response to these comments, the proposed Circular would contain
guidance and procedures that recipients and subrecipients are required
to follow to identify and address adverse and disproportionate
[[Page 40187]]
impacts of their programs, policies, and activities on minority and
low-income populations within their jurisdictions.
B. Reporting Requirements
Five individuals or organizations commented on the reporting
requirements of the Title VI Circular. One commenter urged that FTA
make a concerted effort to minimize the record keeping and reporting
burdens associated with its Title VI requirements, and that FTA seek to
avoid redundancy within specific requirements as well as between Title
VI and other oversight programs. FTA's Title VI requirements for
transit agencies should dovetail with State-mandated recordkeeping and
reporting requirements.
Another commenter noted that the updated Circular should
incorporate changes with the Paperwork Reduction Act of 1995. Another
commenter suggested that the Title VI reporting cycle should be moved
to a four-year cycle to be consistent with the MPO cycle specified
under SAFETEA-LU. A third commenter asked whether recipients' triennial
Title VI submissions are due three years after the earlier submission
date or three years after the date the previous plan was approved.
Commenters also requested that FTA provide training and technical
assistance to help recipients complete the reporting requirements and
provide guidance on how to respond to the Title VI questions in the
triennial review.
The proposed Circular would reduce record keeping and reporting
requirements by allowing recipients to submit the standard annual
certification and assurance in lieu of separate FTA and DOT Title VI
assurances. It would eliminate the existing Circular's requirement that
recipients provide FTA with a list of existing and pending grant
applications. Recipients and subrecipients could collect Census data on
the demographics of households affected by construction projects in
lieu of submitting a detailed list of minority households and
businesses (per the fixed facility impact analysis requirement of the
existing Circular). The Circular would eliminate the redundant
requirements in the provision to provide an assessment of Title VI
compliance by grantees (in Chapter III Part 3(a)(3) of Circular
4702.1). It would require that recipients include in their triennial
Title VI reports to FTA only information that has changed or been
updated since the prior submittal (the proposed Circular would also
clarify that these submittals are due three years after the due date of
the previous submittal). Additional changes to reporting requirements
will be considered pursuant to comments received in this comment
period.
The proposed Circular would not convert the Title VI reporting
requirements to a four-year cycle because FTA has an interest in
coordinating recipients' Title VI submittals with its triennial review
process.
FTA will consider including in the final draft of the Circular a
list of effective practices used to assist recipients in responding to
the reporting requirements, as well as a list of people to contact for
technical assistance.
In addition, those grantees that are allowed to use a portion of
the funds that they receive from FTA for planning and administrative
purposes can use these funds to support their Title VI monitoring and
reporting activities.
C. The Process for Revising the Title VI Circular
Three individuals or organizations commented on the process of
revising the Title VI Circular. One commenter suggested that FTA
undertake a 60-day comment period to allow interested parties to review
the draft Circular and that FTA engage compliance officers from a broad
swath of the industry in tailoring requirements. Other commenters
stated that FTA should seek public input on the draft circulars and
address the concerns and needs of transit providers that use this
guidance.
This notice begins a 60-day comment period on the draft circular.
During this comment period, FTA will make a concerted effort to notify
stakeholders of the opportunity to comment on the draft document.
D. Comments Unrelated to the Notice and Request for Comment
FTA received comments concerning the relative lack of attention and
resources devoted by FTA's Office of Civil Rights to Title VI, compared
to the Americans with Disabilities Act of 1990. It also received
comments related to information posted on its Title VI website and to
recent power point presentations made on Title VI. FTA regards all
civil rights as important and strives to allocate resources
accordingly. This notice does not provide a specific response to these
comments as they are outside the scope of the December 15, 2005 notice
and request for comment.
Issued on July 10, 2006.
Sandra K. Bushue,
Deputy Administrator. 1
[FR Doc. E6-11071 Filed 7-13-06; 8:45 am]
BILLING CODE 4910-57-P