The Congestion Mitigation and Air Quality Improvement Program Assessing 10 Years of Experience -- Special Report 264 (2002) / Chapter Skim
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Appendix D - Interview Guide and Site Visit Results
Appendix D - Interview Guide and Site Visit Results
Pages 211-274
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From page 211... ...
Is guidance provided regarding project initiation? Where do CMAQ projects come from (e.g., previously programmed but unfunded, especially designed to meet CMAQ program goals)
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From page 212... ...
b. Are models and modeling techniques used to estimate travel effects and emission reductions for CMAQ projects?
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6. In your opinion, which types of CMAQ projects come closest to achieving program goals of reducing mobile source emissions and improving air quality?
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-- has the primary responsi bility for programming CMAQ funds in the Albany area. New York State (NYS)
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That being said, projects that are eligible for and use CMAQ funds must demon strate emission reduction potential. The CDTC Policy Board, composed of the chief elected officials of each of the region's eight cities and four counties, at-large mem bers of the area's towns and villages, representatives of NYSDOT, the Capital District Transportation Authority (CDTA)
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From page 216... ...
. Conformity appears to play a less direct role in programming CMAQ funds, largely because the Capital District area does not have a severe air quality problem.
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From page 217... ...
, and support for employer rideshare programs are among the other types of projects funded by CMAQ in the last 5 years. If CMAQ funds had not been available during this period, many projects would not have gone forward, in the judgment of those inter viewed.
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From page 218... ...
When asked which types of projects were most effective in achiev ing CMAQ program goals of emission reductions and air quality improvement, traffic operations projects that reduced travel delays, transit projects that supported new ridership, and transportation demand management projects that included pricing incentives were mentioned. Bicycle and pedestrian projects were not as strong from an emission reduction perspective, but they served other goals, such as improved community livability.
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From page 219... ...
The scope of the program should be broadened to include whatever pollutants are regulated at the time. With regard to project eligibility, NYSDOT staff believed that all projects that can demonstrate emission reduc tions should be eligible for CMAQ funding.
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From page 220... ...
Total network VMT is projected to increase by more than 26 percent between 1999 and 2020. The Northeastern Illinois region is classified as a severe nonattain ment area for ozone and receives approximately $70 million annually
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From page 221... ...
The state allocates CMAQ funding to the MPOs in nonattainment areas by using the same apportionment formula that FHWA uses to apportion CMAQ funds to the states, that is, on the basis of population and severity of the air quality problem. Approximately 97 percent of the allocated funding is provided to CATS in the Northeastern Illinois region, with the remaining funds allocated to the East-West Gateway Coordinating Council in the East St.
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From page 222... ...
The most common types of CMAQ projects implemented over the years in the Northeastern Illinois region include transit improvements (commuter rail, rapid transit, and bus projects) , commuter parking, traffic flow improvements, signal intercon nects, and the enhanced I&M program.
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From page 223... ...
193,045,686 244,818,067 50.28 Rapid transit improvements 70,150,400 87,188,000 17.91 Rapid transit expansion 5,360,000 6,700,000 1.38 Bus route improvements 9,663,560 12,079,500 2.48 Bus replacements 26,499,033 33,123,791 6.80 Transit transfer improvements 2,392,845 2,991,056 0.61 Commuter rail/parking 49,723,848 66,165,720 13.59 Metra/North Central service 29,256,000 36,570,000 7.51 Vanpools 12,300,000 12,425,000 2.55 Intermodal improvements 2,100,000 5,201,500 1.07 Demonstrations 8,168,379 11,304,873 2.32 Bike/pedway improvements 16,627,821 21,085,786 4.33 Enhanced I&M 102,126,000 127,657,500 26.22 Regional programs 6,345,400 7,892,750 1.62 Total 383,479,655 486,790,579 100.00 Source: Data compiled by CATS. TABLE D-3 CMAQ Program Obligations, Northeastern Illinois, FFY 19962000 Program Category Federal ($)
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From page 224... ...
Project Selection Committee members and staff agreed that the primary factor in ranking CMAQ projects is and should be the ability of a project to reduce VOCs.7 6Car-sharing originated in Europe and has quickly spread to Canada and several cities in the United States. Essentially, individuals forgo automobile ownership in favor of paying a nominal fee for the right to use an automobile as necessary.
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From page 225... ...
Project evaluation methodologies are reviewed and approved by the CMAQ Project Selection Committee. CATS has received consider able input on methodology development, particularly from area inter est groups, who formed an environmental coalition to help shape the development of the CMAQ program in the Northeastern Illinois region.8 The Chicagoland Bicycle Federation noted that evaluation methodologies used to rank projects in other states frequently are biased against bicycle and pedestrian projects and recommended that the U.S.
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From page 226... ...
Bicycle and pedestrian projects, for example, have historically received approximately 7 percent of the allocated funding, but have varied from having only cost increases approved for previously funded projects to making up more than 10 percent of the program. Although interest groups are not formally represented on the CMAQ Project Selection or CATS Work Program or Policy Committees, they are
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From page 227... ...
In some cases secondary effects are important in building stakeholder support for particular projects. 10CMAQ projects are put in the SIP to get credit only when the funds are fully com mitted.
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From page 228... ...
Participants also agreed that an indirect benefit of the CMAQ program is the abil ity to heighten the public's awareness regarding air quality through education and focused campaigns. As with many areas, the availability of CMAQ funds provides the region with the ability to enhance its transportation system and to develop alternatives to SOV travel.
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From page 229... ...
CMAQ Program Evaluation Interestingly, the two primary strengths of the CMAQ program identified by case study participants appear also to contribute sig nificantly to the program's chief weaknesses. Specifically, case study participants lauded the consensus process used by CATS in selecting projects and the ability to implement diverse and innova tive projects using CMAQ funding as the primary benefits of the program.
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From page 230... ...
, while others sug gested making these improvements ineligible for CMAQ funds. RTA recommended strengthening the role of FTA in the program so that CMAQ-funded highway and transit projects would complement rather than compete with each other.
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Illinois Environmental Protection Agency Mike Rogers, Environmental Specialist (by telephone) American Lung Association Brian Urbaszewski, Director, Environmental Health Programs Chicagoland Bicycle Federation Randy Neufeld, Executive Director Organizations and Persons Interviewed Via Conference Call August 2122, 2000 Members of the CMAQ Project Selection Committee are indicated with asterisks.
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From page 232... ...
Amendments to the long-range plan and the FY 20022007 TIP have been put on hold as the area attempts to identify measures to close the gap. The Washington metropolitan area is experiencing rapid growth.
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From page 233... ...
There is no regional CMAQ program or process as such in the Washington metropolitan area in the sense that CMAQ funds are pooled and projects identified, selected, and programmed regionwide for CMAQ funding. In fact, each of the three jurisdictions that receive CMAQ funding -- Virginia, Maryland, and the District -- has its own process for deciding which projects to fund with CMAQ dollars.
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From page 234... ...
After review of the input of county staff and elected officials, MDOT makes the final project selection. The District determines its funding priori ties for CMAQ largely in-house through the Department of Public Works, District Division of Transportation.
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The District considers emis sion reduction potential and project readiness in its selection and evaluation of CMAQ projects, but there is no formal rating scheme. Maryland considers project acceptability by elected officials and the public and emission reduction potential in selecting and evaluating projects for CMAQ funding, but there is no formal project ranking system.
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From page 236... ...
Finally, WMATA considers economic development, access, and affordable transit as important factors in evaluating projects for CMAQ funding. Generally, the jurisdictions that recommend projects for CMAQ funding provide the initial information to TPB on projected effects on trips and VMT, project costs, and emission reductions.19 With regard to the latter, the jurisdictions use a consistent methodology, developed at COG/TPB, to evaluate the pollution reduction potential of the TERMS.
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From page 237... ...
, the Washington metropolitan area has used its CMAQ funds primarily to support transit projects (e.g., bus replacements) and traffic flow improvements (e.g., traffic sig nalization projects, HOV lanes)
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From page 238... ...
However, this could have delayed other highway and transit projects.20 Other projects that were required by the CAAA, such as the District's I&M program, and certain bicycle and pedestrian projects that had strong public interest group and community support, also would probably have gone forward using other funds. In the judgment of many of those interviewed, projects without obvious alternative funding sources, such as the Commuter Connections program and regional integrated ridesharing, probably would not have been undertaken.21 When asked which types of projects were most effective in achiev ing CMAQ program goals of emission reductions and air quality 20The Greater Washington Board of Trade questioned whether the absence of CMAQ funding, which is a "drop in the bucket" relative to the region's capital needs (identified as $2.5 billion for FY 2000 alone in the TIP for FY 20002005)
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From page 239... ...
However, area jurisdictions do consider cost as one factor in selecting projects for CMAQ funding. In the opinion of those interviewed, the most cost-effective projects were the I&M program, demand management measures such as telecommuting and ridesharing, park-and-ride lots, clean vehicle and clean fuel tech nologies, and ITS technologies.23 Transit projects were perceived by the staff of the TCC of Northern Virginia to be among the least cost effective from an air quality perspective but cost-effective from a 22A survey conducted for COG showed that 12 percent of the Washington area resi dents telecommute at least 1 day per month.
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From page 240... ...
CMAQ Program Evaluation The main strength of the CMAQ program lies in its provision of a dedicated funding source for transportation projects that improve air quality. Without such a restriction, CMAQ funds would probably be used to finance the region's large infrastructure preservation needs.
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From page 241... ...
The majority thought that the program should not be broadened to cover other pollutants, with the possible exception of PM2.5, and then only if funding were increased.24 Maryland thought that other types of pollutants should not qualify for CMAQ funding until the current 1-hour ozone attainment standard is met, but the state supports CMAQ eligibility for any project that measurably reduces ozone precursor emissions. The consensus was that the focus should 24There was some discussion of whether the program scope should be broadened to focus on other environmental problems, such as noise and storm water, but the gen eral consensus was that this would dilute the air quality focus of the program.
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From page 242... ...
In their view, CMAQ restric tions on the use of funds for transit operations help provide funding for new transit services that otherwise might not be started and give time for those services to build up ridership before local support is needed. Lifting these restrictions, in their opinion, would encourage jurisdictions to substitute CMAQ funds for existing transit opera tions, removing the incentive to use them for starting up new services.
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From page 243... ...
Kaiser, Director, Office of Planning and Capital Programming Washington Metropolitan Area Transit Authority Richard Stevens, Director, Office of Business Planning and Development Kathleen Donodeo, Associate Director, Office of Business Planning and Development Greater Washington Board of Trade Robert Grow, Staff Director, Transportation and Environmental Committee Coalition for Smarter Growth Stewart Schwartz, Executive Director James Clarke, Consultant, Environment and Transportation Policy Houston Site Visit Introduction The Houston-Galveston metropolitan area is designated a Severe-II nonattainment area for ozone, with mobile source emission budgets both for VOCs and NOx. In December 2000, the state air agency, the Texas Natural Resource Conservation Commission, approved the Houston-Galveston SIP, which is designed to bring the eight-county nonattainment area into compliance by 2007.
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From page 244... ...
suballocates CMAQ funds to nonattainment and maintenance areas in the state using the same formula by which national-level CMAQ funds are allocated to Texas. Currently, the Houston-Galveston nonattain ment area receives about $32.5 million in CMAQ funds annually,28 which represents about 2 percent of the $1.6 billion annual TIP.29 The H-GAC Transportation Policy Council, the designated MPO for the eight-county Houston-Galveston Transportation Management Area,30 is responsible for the selection and programming of CMAQ projects as well as other transportation projects in the region.
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From page 245... ...
In addition, the Port of Houston has developed several intermodal projects with CMAQ funds. Lastly, H-GAC administers programs supporting the use of alternative fuels and the start-up of small transit projects for which proposals are solicited annually.
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In anticipation of the 8-hour ozone standard, TxDOT is already planning to set aside a certain amount of future CMAQ funds for allocation to newly designated nonattainment areas.
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Secondary factors, such as safety, are not directly considered in eval uating CMAQ projects, but they can play a role in determining the final project ranking within project categories.38 Conformity requirements have become an increasingly important factor in the selection of CMAQ projects. For example, in prior years CMAQ funds were used to finance grade separation projects, which 37H-GAC has developed different methodologies and assumptions for each project sub category.
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, many grade separation projects, which increase vehicle speed and thus NOx emissions, are no longer desirable from an air quality perspective. Many CMAQ projects as well as other TCMs are included in the area SIP for emission credit.
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From page 249... ...
The area's strong focus on congestion mitigation can perhaps be explained by the high level of congestion in Houston,40 by the major role played by TxDOT in the CMAQ program, and by METRO's role in improving regional mobility, not just operating transit services. Whatever the reasons, the area spent nearly 60 percent of its CMAQ funds in the last 5 years (FY 19962000)
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From page 250... ...
It was established to coordinate and fund projects of regional benefit that support ITS solutions to traffic and incident man agement. CMAQ funds were used to finance building a TRANSTAR command post and are being used for ITS project support now that ITS demo funds are drying up.
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From page 251... ...
In addition, there probably would have been fewer bicycle and pedestrian projects, and there probably would have been delays in implementation of new transit services and traffic sig nalization improvement projects if these projects had to rely on other funding sources. TxDOT thought that most projects probably would be undertaken even if CMAQ funds were not available, but imple mentation schedules would slip considerably.
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From page 252... ...
In the view of the Gulf Coast Institute staff, for example, it appeared that the majority of CMAQ funding has supported traditional highway and transit projects in the region. Even when more innovative projects have been funded, others noted that the program encourages short-term solutions.
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From page 253... ...
H-GAC and TxDOT differed on whether existing CMAQ funds should be used to sponsor such evaluations (H-GAC was in favor of and TxDOT against taking some project funds for this purpose)
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Nixon, P.E., Director of District Transportation Planning Texas Department of Transportation, Headquarters (by telephone) Timothy Juarez, Metropolitan Planning Supervisor, Transportation Planning and Programming Division, Transportation Systems Planning Section City of Houston Douglas Wiersig, Senior Assistant Director, Traffic Management Houston TranStar John R
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Connie Elston, President Los Angeles Site Visit Introduction The Southern California region, which contains 13 nonattainment and maintenance areas, 4 air basins, 5 local air districts, and 6 coun ties (Los Angeles, Orange, Riverside, San Bernardino, Ventura, and Imperial) , has some of the most serious air quality problems in the nation.
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From page 256... ...
suballo cates CMAQ funds to nonattainment and maintenance areas in the state using the same formula by which national-level CMAQ funds 46The conformity status of the 1998 RTP expired on June 9, 2001. The 2001 RTP Update was approved by the Regional Council of the area's MPO, the Southern California Association of Governments, on April 12, 2001.
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From page 257... ...
Because of the severity of its air quality problems, the six-county region receives nearly 60 percent of the statewide CMAQ apportion ment.50 In FY 20002001, the apportionment was nearly $220 mil lion for the region, with about 62 percent going to Los Angeles County, 34 percent to Orange, Riverside, and San Bernardino Counties, and the remaining 4 percent to Ventura County. Imperial County, which is thinly populated, does not receive CMAQ funds (Keynejad 2001, 8)
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From page 258... ...
Each county has its own process.54 The Los Angeles County Metropolitan Transportation Authority (MTA) , the largest user of CMAQ funds in the region, does not have a separate call for projects for CMAQ.
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From page 259... ...
The choice of projects for CMAQ funding is also influenced by project readiness. Currently, the board of directors has earmarked all of the CMAQ funds remaining under TEA-21 for a single project, the urban rail Centerline project, which serves central Orange County.
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From page 260... ...
Project selection criteria were established, and the Transportation Advisory Committee evaluated all proposals using the criteria, with the assistance of a consultant who helped estimate project emission reductions and prepare other technical calculations.58 A prioritized list of projects was developed 57These calls cover only those CMAQ funds -- about 80 percent of the total -- available to SCAB, which covers the western part of the county. The remaining funds available in the Salton Sea Air Basin, which covers the eastern part of the county, were handled by the Coachella Valley Association of Governments, the council of governments for that area, who coordinated the programming of these funds.
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From page 261... ...
RCTC, like SANBAG, has used CMAQ funds for ready-to-obligate HOV projects -- nearly three-fifths of the second call for projects were recommended for this purpose. Funds have also been earmarked outside the process (e.g., the $2 million Clean Fuels Opportunity Fund)
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From page 262... ...
In addition, the California Air Resources Board and the local air agencies have developed emission control strategies, incorpo rated into local air basin air quality management plans and SIPs, to help meet air quality attainment deadlines. CMAQ funds have been used extensively to fund TCMs and other emission control strategies, such as replacement of diesel with alternative fuel buses.
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From page 263... ...
Consultants help prepare the technical assessments in Riverside and San Bernardino Counties, in the latter case in conjunction with SANBAG staff, Caltrans, the relevant air district, and SCAG. Several of the counties, such as Los Angeles, Riverside, and Ventura, explicitly take into account secondary factors, such as economic development, multi modal and multijurisdictional effects, geographic balance, and project readiness, in evaluating CMAQ projects.
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From page 264... ...
Staff of VCTC suggested that there was little incentive for local agencies to monitor and evaluate CMAQ projects, particularly if it would take away from project funding. SANBAG staff suggested that ex-post eval uation is not necessary for straightforward projects, like vehicle engine replacements, for which the emission reduction benefits are clear.
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From page 265... ...
. For example, San Bernardino and Riverside Counties have obligated large amounts of CMAQ funds for traffic flow improvements, including HOV projects.
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From page 266... ...
CMAQ Total Five-County Total Traffic flow improvements 180,641,170 139,224,012 23.9 Shared ride 17,559,561 11,353,295 1.9 Transit 455,042,865 368,832,984 63.3 Bicycle/pedestrian 8,521,636 7,526,601 1.3 Demand management 2,304,799 2,076,729 0.4 Other 79,179,782 53,994,452 9.2 Total 743,249,813 583,008,073 100.0 Los Angeles County Traffic flow improvements 67,755,489 57,051,954 14.6 Shared ride 10,660,830 5,142,621 1.3 Transit 385,013,257 307,680,926 78.6 Bicycle/pedestrian 768,119 673,642 0.2 Demand management 345,896 342,512 0.1 Other 22,738,033 20,302,595 5.2 Subtotal 487,281,624 391,194,250 100.0 Riverside County Traffic flow improvements 50,795,887 41,288,526 54.0 Shared ride 1,630,976 1,443,902 1.9 Transit 21,305,778 18,861,438 24.7 Bicycle/pedestrian 3,800,000 3,364,000 4.4 Demand management 54,000 47,806 0.1 Other 21,901,958 11,431,713 14.9 Subtotal 99,488,599 76,437,385 100.0 San Bernardino County Traffic flow improvements 61,134,339 40,037,668 73.3 Shared ride 3,362,562 2,976,875 5.5 Transit 7,789,216 6,051,208 11.1 Bicycle/pedestrian 158,000 128,788 0.2 Demand management Other 6,279,673 5,396,843 9.9 Subtotal 78,723,790 54,591,382 100.0 Orange County Traffic flow improvements Shared ride 900,000 900,000 2.8 Transit 17,600,179 15,581,437 47.7 Bicycle/pedestrian Demand management Other 27,454,997 16,150,527 49.5 Subtotal 45,955,176 32,631,964 100.0 (continued)
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From page 267... ...
The best strategies for congestion relief include projects that fall under the category of traffic flow improvements -- signal system syn chronization, intersection improvements, and HOV projects. To the extent that transit services, including shuttles, move riders in high capacity vehicles or remove vehicles from the highway entirely, these projects were also viewed as being effective for congestion relief.
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From page 268... ...
Some ridesharing projects are low in cost and have tangible benefits. Finally, paving of dirt roads -- projects directed toward PM10 emission reductions -- is also thought to be cost-effective, although FHWA and Caltrans view many of these projects as capacity enhancing and thus ineligible for CMAQ funding.
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From page 269... ...
. cies use this methodology after the fact to justify project selection rather than before the fact as a project selection tool.66 CMAQ Program Evaluation The key strength of the CMAQ program, according to those inter viewed, is its role as a dedicated source of federal transportation 66At least one reason for this, according to VCTC staff, is the lack of data to make the necessary assessments before the project is implemented.
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From page 270... ...
For exam ple, MTA staff believe that restricting funds to new services and oper ations, particularly for transit projects, can bias the program in favor of suburban areas; in their view, CMAQ funds should be eligible for use in projects that support existing transit services and ridership in urban areas. In addition, more attention should be paid to providing a transition period lengthier than the current 3 years for local govern ments that use CMAQ funds to support operations so that alternative funding sources can be found to continue newly started-up services.
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From page 271... ...
Third, 3-year restrictions on the use of CMAQ funds for operations should be lengthened if it can be demonstrated that the project continues to provide new emission reductions. Fourth, more project evaluation would be desirable, including restricted funds for this purpose (city of Los Angeles)
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From page 272... ...
City of Los Angeles Jaime De La Vega, Assistant Deputy Mayor, Office of the Mayor Orange County Transportation Authority James Ortner, Manager, Transit Technical Services Dean Delgado, Principal Transportation Analyst William J Dineen, Manager, Financial Plans, Financial Planning and Analysis Ventura County Transportation Commission Ginger Gherardi, Executive Director (by telephone)
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From page 273... ...
Eric Haley, Executive Director Cathy Bechtel, Director of Planning and Programming South Coast Air Quality Management District Connie Day, Program Supervisor Eyvonne V Sells, Regional Transportation Programs, Transportation Specialist Coalition for Clean Air Tim Carmichael, Executive Director References Abbreviations CATS Chicago Area Transportation Study CDTC Capital District Transportation Committee COG Metropolitan Washington Council of Governments FHWA Federal Highway Administration H-GAC Houston-Galveston Area Council METRO Metropolitan Transit Authority of Harris County MTA Los Angeles County Metropolitan Transportation Authority NYSDOT New York State Department of Transportation SCAG Southern California Association of Governments TPB National Capital Region Transportation Planning Board CATS.
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From page 274... ...
2001. Congestion Mitigation and Air Quality Improvement (CMAQ)
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