National Academies Press: OpenBook

Integrating Sustainability into the Transportation Planning Process (2005)

Chapter: Committee Findings and Recommendations

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Suggested Citation:"Committee Findings and Recommendations." National Academies of Sciences, Engineering, and Medicine. 2005. Integrating Sustainability into the Transportation Planning Process. Washington, DC: The National Academies Press. doi: 10.17226/13878.
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Suggested Citation:"Committee Findings and Recommendations." National Academies of Sciences, Engineering, and Medicine. 2005. Integrating Sustainability into the Transportation Planning Process. Washington, DC: The National Academies Press. doi: 10.17226/13878.
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Suggested Citation:"Committee Findings and Recommendations." National Academies of Sciences, Engineering, and Medicine. 2005. Integrating Sustainability into the Transportation Planning Process. Washington, DC: The National Academies Press. doi: 10.17226/13878.
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Suggested Citation:"Committee Findings and Recommendations." National Academies of Sciences, Engineering, and Medicine. 2005. Integrating Sustainability into the Transportation Planning Process. Washington, DC: The National Academies Press. doi: 10.17226/13878.
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Suggested Citation:"Committee Findings and Recommendations." National Academies of Sciences, Engineering, and Medicine. 2005. Integrating Sustainability into the Transportation Planning Process. Washington, DC: The National Academies Press. doi: 10.17226/13878.
×
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Suggested Citation:"Committee Findings and Recommendations." National Academies of Sciences, Engineering, and Medicine. 2005. Integrating Sustainability into the Transportation Planning Process. Washington, DC: The National Academies Press. doi: 10.17226/13878.
×
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Suggested Citation:"Committee Findings and Recommendations." National Academies of Sciences, Engineering, and Medicine. 2005. Integrating Sustainability into the Transportation Planning Process. Washington, DC: The National Academies Press. doi: 10.17226/13878.
×
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Suggested Citation:"Committee Findings and Recommendations." National Academies of Sciences, Engineering, and Medicine. 2005. Integrating Sustainability into the Transportation Planning Process. Washington, DC: The National Academies Press. doi: 10.17226/13878.
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1The idea of a sustainable society in which theneeds of the present are met without compro-mising the ability of future generations to meet their own needs is compelling. Despite its many dimen- sions and uncertainties, sustainability is generally agreed to be important and worth pursuing. At the same time, current trends in transportation contribute to unsustainable conditions, including climate change, energy insecurity, congestion, noise pollution, and eco- logical impacts. Widespread uncertainty exists about how to address the goal of a sustainable transportation system. What is clear is that attaining a sustainable transportation system will require action by the public sector, private companies, and individual citizens. Given the complexity of the issue and the variety of players, it also will require a major cultural change to raise and organize societal awareness. The effort to form a culture in which sustainability con- cepts are legitimized and integrated into transportation planning is just beginning and will likely involve a long learning process. The Transportation Research Board (TRB) Conference on Integrating Sustainability into the Transportation Planning Process examined whether and how sustainability objectives can be introduced into the planning process for surface transportation facilities and operations. After the final conference session, the TRB Commit- tee for the Conference on Introducing Sustainability into Surface Transportation Planning convened to develop its findings, which were based largely on the presenta- tions and discussions at the conference. A summary of the committee’s findings and recommendations follows. They are organized into four sections: • Issues of sustainability, • Vision of a sustainable transportation system, • State of the practice, and • Strategies for integrating sustainability concepts into transportation planning. ISSUES OF SUSTAINABILITY The concept of sustainability has a powerful grip on people. Few could disagree that attainment of a sustain- able transportation system is desirable; however, many challenges lie along the path to achieving such a system. The nation’s transportation system has enhanced qual- ity of life through increased access to health care, edu- cation, employment, recreation, and a wide range of consumer goods. These benefits have not been achieved without costs. The negative impacts of the transporta- tion system include congestion; fatalities and injuries; noise, air, and water pollution; greenhouse gas emis- sions; diminishing energy resources; and biological and ecosystem damage. The challenge of a sustainable trans- portation system lies in minimizing these costs while offering strong transportation benefits. There have been some successes in responding to these challenges. Air quality regulations, for instance, Committee Findings and Recommendations

have resulted in substantial air quality improvements. Air pollution has not been eliminated, but air quality is better in most areas. This success and others provide encouragement that sustainable transportation chal- lenges can be met. However, consistent effort is neces- sary, even in areas where progress has been made. Air quality has improved, but increasing travel volumes require continuing reductions in air pollution. Numerous unsustainable impacts of transportation demonstrate the challenges faced in transitioning to a sustainable transportation system. A discussion of these impacts is provided below. Nonrenewable Fuel Depletion and Energy Insecurity The current transportation system depends on nonrenew- able fuels. The rate of consumption of nonrenewable fuels is projected to grow as travel domestically and elsewhere increases. The challenge is in finding ways to reduce the rate of consumption of nonrenewable energy sources— including more carbon-intense unconventional sources of petroleum—through the development of renewable energy sources, improved energy efficiency of vehicles, and increased use of public and nonmotorized transporta- tion. There are economic, environmental, and societal trade-offs associated with each of these alternatives. Greenhouse Gas Emissions The burning of fossil fuels to power transportation vehi- cles releases greenhouse gases into the atmosphere, which contributes to increasing global average tempera- ture and other climate changes. Greenhouse gases are emitted throughout the fuel cycle, from well to tailpipe. The use of petroleum-based fossil fuels for transporta- tion is responsible, directly or indirectly, for more than one-fourth of U.S. emissions of carbon dioxide, the prin- cipal greenhouse gas produced by transportation. Improved fuel efficiency and increased use of alternative fuels are proven options available to reduce greenhouse gas emissions over the entire fuel cycle. Global Climate Change An enhanced greenhouse effect will have significant impacts on sea level, climate, and agriculture. Impacts of the rise in sea level alone may include the flooding of tunnels, coastal highways, runways, and railways. Other impacts may include grounding of airplanes due to high temperatures, buckling of highways and rail- road tracks due to heat, the submersion of dock facili- ties, and a shift in agriculture to areas that are now cooler. Such results demonstrate that reducing green- house gas emissions must be a top priority. The extent of mitigation will mainly determine the rate of climate change experienced by future generations. Because of the inertia of the climate system, adaptation will be nec- essary regardless of efforts to reduce greenhouse gas emissions from this time forward. It is probably too late to prevent or completely reverse climate change. Local Air Quality Motorized vehicles contribute significantly to local air pollution. Poor air quality has various negative health impacts, particularly on the respiratory system. Air quality, however, is one area where large gains have been made. Growth in transportation activity threatens to limit the effectiveness of existing strategies to reduce emissions. As a result, despite the progress that has been made, new methods, technologies, and policies to improve air quality are required. Fatalities and Injuries Unacceptable levels of fatalities and injuries occur on the nation’s highways. A goal of zero fatalities and seri- ous injuries is appropriate. Sustainability argues for a continuous decline in fatalities and injuries resulting in a safer transportation system. Congestion Congestion would be a sustainability issue even if an energy source were developed that had zero harmful emissions and was renewable. Congestion worsens motorized mobility. The rise in congestion is attribut- able not only to increased personal mobility and freight movement but also to a lack of adequate and reliable transportation funding. Congestion negatively affects the economic and social health of the nation and, if not addressed, will leave future generations without a rea- sonable level of mobility. Some observers argue that congestion can have positive implications for sustain- ability because congested highways cause some people to choose alternative modes of transportation. Noise Pollution The transportation system is a significant source of noise. Transportation noise originates from all motor- ized modes of transport. Examples of transportation- 2 INTEGRATING SUSTAINABILITY INTO THE TRANSPORTATION PLANNING PROCESS

related sources of noise include engines, vehicle contact with pavement and other surfaces, horns, construction, brakes, and airplane takeoff and landing, to name a few. Loud noise and continuous noise are harmful to human health. The impacts include behavioral disorders, heart disease, and hearing loss. Noise also disturbs wildlife. Studies of the breeding and habitat of birds have found that higher volumes of traffic affect the nesting patterns of birds. Noise harms human health and wildlife and can damage the quality of life. Low Mobility A reasonable level of mobility is an essential character- istic of a sustainable transportation system. Mobility is necessary for the nation’s economy and for social and cultural interaction. Transportation must be available to all members of the community, including vulnerable groups such as persons with low income, children, the elderly, and the disabled. Ecosystem Damage Transportation activities can harm biological resources. The effects can range from the death of individual animals to the loss of critical habitat. Some impacts are localized, such as animals killed along highways, disruption of migration patterns, runoff that pollutes rivers and streams, oil tanker spills, and plants affected by emissions. Other impacts are more profound, such as fragmentation and loss of species and long-term damage to ecosystems. Improvements have been made with regard to the effects of transportation on ecosystems. For example, mitigation requirements for highways and other paved surfaces at airports, seaports, and maintenance garages have greatly reduced runoff impacts. The Endangered Species Act has provided significant protections. As population and travel volume increase, a continuous effort must be made to maintain and improve on areas of success. Lack of Equity Intergenerational and social equity are the overarching aims of a sustainable transportation system. In reducing the unsustainable impacts of transportation, as dis- cussed elsewhere in this section, progress toward an equitable transportation system would be made. The challenges to achieving a sustainable transporta- tion system identified above provide a baseline for an action agenda that can lead to a sustainable transporta- tion system. Properly planned transportation systems can play a central role in promoting sustainability. VISION OF A SUSTAINABLE TRANSPORTATION SYSTEM What would a sustainable transportation system look like? Outlining the basic components of such a system is an important step in progressing toward sustainability, even if the resulting vision is not entirely clear. At the most basic level, a sustainable transportation system is one that meets the transportation and other needs of the present without compromising the ability of future generations to meet their needs. In considering the needs of future generations, however, the benefits of the present transportation system should not be excessively inhibited or used as the justification for precluding future choices. Transportation planners and providers must continuously struggle with the trade-offs between the economic and societal benefits of transportation and the associated unsustainable environmental, safety, health, ecosystem, and equity impacts. A sustainable transportation system requires a cul- ture that not only sees sustainability as desirable but also accepts the inclusion of sustainability concepts in the transportation planning process and supports the tough decisions necessary to make sustainability a pri- ority. The public and policy makers in this culture will understand and consider potential solutions, such as integrated land use and transportation and innovative public transportation (for example, bus rapid transit and car sharing). This cultural acceptance will be supported by the provision of adequate and reliable transportation fund- ing consistent with fiscal constraints. Legislators and policy makers will recognize that a sustainable funding source is needed to meet current mobility needs while addressing the unsustainable effects of transportation. In addition, transportation providers must be able to ensure that investments in transportation facilities have adequate operations and maintenance funding. A sustainable transportation system will have account- ability in the planning process. Performance measure- ment and feedback loops will enable planners to learn from past experiences and understand fully the ramifica- tions of decisions on the components of sustainability. Continuous improvement enabled through flexibility and innovation will be a key element of sustainable trans- portation as travel patterns, vehicle and fuel technologies, land use patterns, population densities, and individual travel choices change. STATE OF THE PRACTICE On the basis of the ideas and issues addressed at the conference (and summarized elsewhere in these pro- ceedings), the committee developed a set of observa- 3COMMITTEE FINDINGS AND RECOMMENDATIONS

tions about the state of the practice with regard to sus- tainability concepts and transportation. These are orga- nized into two categories: (a) political, legislative, and regulatory findings and (b) transportation planning process findings. Political, Legislative, and Regulatory Findings Lack of a National Sustainable Transportation Policy There is no effective national policy with regard to the sustainability of transportation. A national policy on the need to integrate sustainability concepts into trans- portation planning could facilitate the development of legislation, regulation, guidance, and other tools. The new tools would support changes in current practices that are unacceptable because they fail to emphasize or ignore notions of sustainability. Innovative Solutions Often Discouraged by Current Standards and Regulations Innovative transportation solutions that could address sustainability issues are often discouraged by inflexible and outdated regulations, rules, codes, and standards. Examples of such innovative solutions are improved fuel economy standards, full-cost pricing, certain transporta- tion infrastructure and vehicle technologies, and alterna- tive energy sources and fuels. Flexibility must be provided to enable minimization of adverse sustainability impacts. Transportation Planning Process Findings Transportation Planning Horizons Not Long Enough Federal regulations relating to transportation and air qual- ity require states and metropolitan planning organizations to complete long-range transportation plans and pro- grams for a 20-year forecast period. For transportation planning processes to integrate sustainability objectives, the forecast period must be at least 40 years. Some plan- ning organizations have begun to extend their planning horizons, but the practice remains limited. Assessment of Transportation Impacts Not Sufficiently Broad The effects of transportation on climate change are not usually considered in the planning process. In certain areas, such as road ecology, some effects are considered, such as the presence of endangered species in the planned corridor. Other effects, however, such as the impacts of noise on the breeding and migration patterns of birds, are not commonly considered. A more coher- ent and integrated road ecology approach is needed. Transportation planning, particularly in urban areas, is based on already adopted land use plans and objectives. Integrated transportation and land use decision making has not been realized. Land use planning and zoning remain the prerogative of local governments that strive to optimize their own objectives, which often directly relate to maximizing local tax revenue. Planning processes also do not give appropriate importance to the role of freight and its impact on sustainability. Existing Institutional Structure Permits Integrating Sustainability into Planning Sustainability objectives can be introduced into the trans- portation planning process within the current institu- tional structure. State departments of transportation and metropolitan planning organizations, for example, are capable of incorporating sustainability into their plan- ning processes. Indeed, sustainability practices and tools do exist and are utilized by some states and planning organizations, but not widely. The barriers to implement- ing sustainable transportation planning within current organizations are more cultural than institutional. STRATEGIES FOR INTEGRATING SUSTAINABILITY CONCEPTS INTO TRANSPORTATION PLANNING In line with its findings, the committee developed a set of recommendations focused on updating and improv- ing the planning process, providing public and profes- sional education, and identifying areas for further research. Given the complexity and scale of the sustain- ability challenge, the committee first pointed to three areas where broadly based action is needed to achieve greater coherence and consensus on sustainability, both nationally and internationally: • Adopting a national statement of values and defi- nitions on sustainability, including a transportation com- ponent with specific national objectives and performance measures that can support review and revision of the objectives. Possible objectives include the reduction of greenhouse gas emissions from transportation sources via energy efficiency, reduction in the use of nonrenew- able transportation fuels, and support of nontechnologi- cal solutions such as incentives for use of nonmotorized transport and public transportation. 4 INTEGRATING SUSTAINABILITY INTO THE TRANSPORTATION PLANNING PROCESS

• Building consensus on a sustainability policy across all levels of government—federal, state, regional, and local. To lead effectively in communication and consensus- building activities across relevant agencies at all levels of government, the U.S. Department of Transportation will need to determine how to bring about this collab- oration and how best to support the efforts of local governments to tackle transportation sustainability. • Cooperating with other nations to address the global dimensions of sustainable transportation. With impacts that are global as well as local and regional, this inherently international issue requires that the United States work cooperatively with other nations to address sustainable transportation effectively. The committee made the following recommendations for integrating sustainability concepts into transportation planning. Planning Process Recommendations Adopt Sustainability as a Primary Objective of Transportation Planning At all levels of government—federal, regional, state, and local—use of sustainability criteria should be a central feature of transportation planning. A goal of trans- portation planning should be to address transporta- tion’s unsustainable impacts, including depletion of nonrenewable fuels, climate change, air pollution, fatal- ities and injuries, congestion, noise pollution, low mobility, biological damage, and lack of equity. These criteria should be built into planning guidelines and processes. In addition, transportation planning should be proactive and promote sustainability through prac- tices such as integrated land use and transportation planning and cross-modal planning. Transportation planning also should conduct forward-looking analyses of demographics, market preferences, and job location trends to be responsive to the emerging needs of future generations. Use Existing Institutional Structure but Address Cultural Issues The existing institutional structure of transportation planning—state departments of transportation, met- ropolitan planning organizations, and local planning agencies—is capable of integrating sustainability objectives into the transportation planning process. Planning agencies nevertheless face cultural chal- lenges that must be overcome to address unsustain- able transportation impacts. Cultural issues must be accommodated to enable the incorporation of sus- tainability-friendly solutions such as integrated land use and transportation planning, cross-modal plan- ning, and full-cost pricing. These solutions require transportation planners to reach beyond their tradi- tional areas of expertise and work collaboratively with other agencies. Moreover, to enable accountability for transportation investment decisions, transportation planning institutions should be given budgetary and management authority. Adopt Use of Inclusive Long-Term Visioning in Planning Adopting longer horizons and visioning techniques in the development of transportation plans will enhance the ability of planning processes to integrate sustainabil- ity objectives. Standard 20-year planning horizons need to be extended to at least 40 years to incorporate sus- tainability concepts. In addition, public involvement should be expanded to enable plans that reflect a com- munity’s vision, have support from a broad constituency, and are therefore more likely to be implemented success- fully. Underrepresented groups such as children, the elderly, and those with low income should be included in public involvement, along with industry, educators, and public health officials. In conjunction with visioning and longer planning horizons, backcasting should be encour- aged. Backcasting involves working backwards from a particular desired future, or set of goals, to the present. A handful of planning institutions have begun imple- menting these practices, and their experiences can be valuable to other agencies. Evaluate the Broad Range of Effects of Transportation Investments in the Planning Process Transportation investments have a wide range of effects on the economy, the environment, and our culture. A broad transportation planning perspective should be implemented to enable planners to address more fully unsustainable effects such as congestion, lack of equity, climate change, air pollution, ecological degradation, and resource depletion. In tackling these effects, plan- ning agencies should consider applying “triple bottom line” analysis to transportation planning. Triple bot- tom line analysis gives environmental quality and social justice equal weight with financial considerations. When transportation’s full range of effects is consid- ered in the planning process, innovative solutions can be developed that enable reasonable growth while addressing sustainability. 5COMMITTEE FINDINGS AND RECOMMENDATIONS

Education Recommendation: Educate Stakeholders in Issues of Sustainability To build consensus and institutional capacity, education in the dimensions of sustainability including sustainable transportation is needed. Educational methods such as professional development and training; public outreach; institution building; information dissemination; and adaptation of elementary, secondary, and tertiary cur- ricula should be applied to appropriate stakeholder groups. For example, planning professionals should receive uniform and legitimized training and education to augment planners’ capabilities to include sustainabil- ity issues. Planning professionals need to be provided with the information, resources, and skills that can enable them to deal with the complex interrelated issues associated with sustainability. As another example, cur- ricula on sustainability should be used in elementary, secondary, and tertiary schools to instill the values of sustainability in younger generations. The general pub- lic should be educated in sustainability and the impor- tance of individual decisions and behavior through outreach and other forms of information dissemination. Recommended Areas for Further Research Methods and Models for Longer Time Horizon and Broader Reach Planning Tools that enable the integration of sustainable trans- portation practices into the planning process should be developed. Tools are particularly needed in the areas of sustainable urban development, finance, freight, green- house gas emissions, road ecology, and public decision making. Research also is needed on the extent to which methodologies such as longer horizon planning, vision- ing, and backcasting will result in more sustainable transportation. Individual Transportation Behavior Research current behavior patterns and the circumstances under which current behavior might change. Research attitudes toward sustainability and environmental issues. These data will enable improved planning for the next generation of travelers, shippers, and carriers. Alternative Energy Sources and Technological Advancements Research innovative solutions to unsustainable effects of transportation including, but not limited to, the following: • New vehicle and fuel technologies such as small specialized vehicles, plug-in hybrid vehicles, electric guideways, and fuel cell vehicles; • Alternative vehicle concepts such as car sharing and smart paratransit; • New low-carbon fuels such as biofuels, electricity, and hydrogen; • More energy-efficient combustion engine vehicles; • Sustainable means of freight movement; and • Pricing and full costing of fuel and roadways. Case Studies and Pilot Projects Through pilot projects and case studies, research inno- vative processes, tools, and methods that demonstrate the integration of sustainability concepts into trans- portation planning. Case examples and pilot projects should be conducted with metropolitan planning organi- zations and state agencies to demonstrate innovations such as visioning; longer planning horizons; backcasting; ecological mitigation; land use and transportation inte- gration; introduction of new modes, vehicles, and fuels; and cross-modal planning. Air quality attainment methodology can be and, in a few instances, has been easily adapted to accommodate greenhouse gas esti- mates. U.S. Environmental Protection Agency–funded efforts with state energy agencies have demonstrated the merits of pilot approaches. Metropolitan planning orga- nizations and state departments of transportation are fully capable of undertaking meaningful efforts if federal funding could provide the necessary resources. CONCLUSION Achieving a sustainable transportation system—one in which (a) current social and economic transportation needs are met in an environmentally conscious manner and (b) the ability of future generations to meet their own needs is not compromised—is not a simple task. Cer- tainly, the path to such a transportation system will be difficult. Transportation system planners and providers will need to work with and respond to market conditions, demographic changes, and political challenges; it will not be possible to envision achieving sustainability otherwise. Despite the enormity of the challenges, transportation planning can play a significant role in a mix of public and private actions toward the goal of sustainability. Annually, tens of billions of dollars are invested in trans- portation facilities and services by governmental units in the United States. These investments leverage a far greater level of private transportation investment to sus- tain the economy. Transportation planning products generate, prioritize, guide, and authorize these strategic 6 INTEGRATING SUSTAINABILITY INTO THE TRANSPORTATION PLANNING PROCESS

public investments. Thus, whether decisions made within the planning process reflect or ignore sustainability con- cepts has a significant bearing on the likelihood of achieving a sustainable system. In brief, two achievable adjustments will greatly help integrate sustainability concepts into transporta- tion planning practices: (a) taking a broader view with full concern for transportation’s impacts on public health, equity, and the environment; and (b) taking a longer-term view with full concern for future genera- tions. While some emerging practices embrace these two adjustments, most current practices are still rooted in more limited, traditional technical methods, evalua- tion schemes, and time horizons. A national consensus concerning sustainability, facilitated by dialogue and technical assistance supported by the U. S. Department of Transportation, will be needed to ensure that the entire transportation planning community makes the necessary adjustments to integrate sustainability into planning practice. 7COMMITTEE FINDINGS AND RECOMMENDATIONS

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TRB Conference Proceedings 37: Integrating Sustainability into the Transportation Planning Process summarizes a July 11-13, 2004, conference in Baltimore, Maryland, that examined whether and how sustainability objectives can be introduced into the planning process for surface transportation facilities and operations. The report explores issues associated with sustainability, the vision of a sustainable transportation system, the state of the practice, and strategies for integrating sustainability concepts into transportation planning.

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