NEW YORK Volume VIII No. 1 Fall 2004 TRANSPORTATION JOURNAL

wagner.nyu.edu/rudincenter

THE STATE OF TRANSPORTATION IN NEW YORK Letter from the Editor It has become customary for the New The inability of the United States Congress to reach agreement on new legislation for the federal York Transportation Journal to cele- transportation funding programs, and the soon to expire New York State funding programs, is creating brate the livability of New York City. We challenges for transportation agencies and local government in programming projects. This is further have exhibited articles discussing the strong role that the City’s transporta- complicated by an evolution in national and state priorities as the growth in new roads has slowed tion infrastructure has played in the and the maintenance of existing highways and bridges has become recognized as important to City’s development as a leading interna- the economic well being of the State. New York State Department of Transportation (NYSDOT) tional economic power. We have also Commissioner Joseph H. Boardman has been a leader in the discussions regarding the new financing presented articles that cite the mainte- programs and has created new processes and considerations for assigning transportation funding nance and expansion of the City’s trans- portation system as essential for the across the State. Janette Sadik-Khan, Senior Vice President and Transit Director at Parsons City to keep its economic edge and Brinckerhoff, and a regular contributor to the Journal, interviewed Commissioner Boardman on emphasized the need for a responsibly current financing issues, funding priorities for the State transportation program and other key issues. financed MTA capital program.

As we go to press, a proposed 2005-2009 JSK: What impact has the delay in federal time we have insufficient funds at the state MTA Capital Program is being debated. funding had on the NYSDOT program? level to make up for losses at the federal level. This edition of the Journal contributes to the discussion. Alexis Perrotta of the JB: The real issue is the inability to plan for We probably have an insufficient amount of Regional Plan Association contributes an article that critiques the proposed MTA the future because we don’t know with a high money at this point in time to deliver the type 2005-2009 Capital Plan and presses for degree of certainty what kind of funding we of program for all the modes in New York — maintaining an adequate level of capital are going to receive. The problem is not just whether they are transit, highway, rail or investment financing while at the same the fact that we don’t have a bill, but that we aviation — needed to advance the economy. time restoring the MTA’s fiscal health. In don’t even know what size it might be or

(Continued on page 5) what the splits might be. JSK: Many State DOTs have been struggling with staffing problems due to the retirement of Now if you go beyond DOT, because you asked many senior professionals. How are you going about DOT specifically, but if you go beyond to deal with the wave of retirements? Are you Inside NYTJ DOT, I think that there’s a question about looking to do more work through contracting or what’s going to happen with transit — engaging in internal training of staff? Financing the MTA Capital Plan whether the resources that have been prom- By Alexis Perrotta ised for the Metropolitan Transportation JB: That’s an interesting question. In 1995 we Authority (MTA) are going to continue to be had 12,777 employees here (full-time equiva- Stepping up to the Plate for there for the future. Our expectation is they lents). By the end of this fiscal year, we’ll have the MTA Capital Plan will be, but without a bill there’s an inability 9,499, so we’ll have had a reduction in staffing By Henry Peyrebrune, P.E. for us to have the degree of certainty we here at NYSDOT at 26 or 27 percent of our would like. workforce. That’s not just the professionals. It’s The Grand Concourse: Historic, Visionary, also those who are doing the day in and day out Abused and Re-imagined JSK: Given the continuing lack of federal work of the snow and ice program maintenance By Michael Fishman reauthorization, what are your plans for the and all of those who work every day to have a next fiscal year and what do you see as the most good transportation system. Green Transportation promising source of funding for the program? Infrastructure for We have had a change — a transformation I New York City JB: Well certainly we expect there’s going to would call it — in the way we’re doing work, By Mysore L. Nagaraja be a bill, that’s number one. How likely is it similar to the way the private sector and others that they’re going to have a resolution by have done things, knowing that fewer Evaluation Study of the Port Authority of NY & NJ’s early Fall? I think it’s probably unlikely resources are available or less expertise is Value Pricing Initiative because of some of the outstanding issues. available to be used in the same way that it’s By Allison L. C. de Cerreño, Ph.D. We still have a dedicated fund for transporta- always been used. tion in New York State but at this point in

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TRANSPORTATION IN NEW YORK CONT.

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Part of the rationale behind the change is the particularly when we look at our border crossings from New York into Canada. completion of the interstate system. So there is All of the transportation agencies in the State are trying to figure out the best a need to change how we do work, because today way to both better secure the transportation system and also not make it it’s really more about operating the system a burden. This way there continues to be a seamless transportation system — a efficiently. In some cases there needs to be some system that’s interconnected throughout New York State. expansion, but in most cases today we need to rebuild, to “fix it first,” so to speak, to take care JSK: In terms of funding allocations and transportation policy, what is your of our infrastructure assets to advantage our- policy for balancing New York City vs. the rest of New York State, and New York selves for the future. State vs. the other trading partners that we have?

This will include different work that people don’t JB: Well, certainly there is historical perspective to what is out there and the do inside DOT and a different way or a different types and levels of funding necessary to maintain the service, whether it be type of work that we would be asking the private transit service or whether it be highway service across the State. But those get sector to support us on. We’ve always had a blown out the window when you have major projects. For example, whether it’s roughly 50/50 split between using private services converting Route 17 to Interstate standards to redesignate it as Interstate and our own staff. I don’t expect that percent- 86 or connecting up to the new Interstate 99 coming up from Pennsylvania age will change much, Janette. It changes a and the Corning area. Just a couple of projects can overwhelm that little bit year to year based on the complexity region’s normal allocation for asset preservations. So what has to happen is and the types of projects, but over time, I think we have to rebalance how those highway dollars are being used across the State that’s what you see. and certainly prioritize those things that we need to get done. We have five priority areas we look at when we make our investment decisions: JSK: The increased emphasis on security is 1) Security; 2) Safety; 3) Reliability or Mobility of the transportation system, certainly a new type of work. To the extent that with Reliability being the key; 4) Economic Sustainability; and, 5) Environmental you can talk about them, what are your security Sustainability. Looking at those five areas what we find is a way to deliver priorities and plans to deal with sensitive areas? resources, whether they are in New York City, Elmira or in Buffalo.

JB: That’s a good question. Generally, we take JSK: What are the performance measures that you use to assess your priorities our lead at this point in time from the State’s for NYSDOT and how do you think they are doing? Office of Homeland Security. We have started working with them, inventorying our assets and JB: Well we’re developing a new set of performance measures. In the past, the facilities, and deciding how we might harden or primary performance measures at DOT had to do with pavement conditions and take care of our critical transportation assets. As bridge conditions. You looked at the conditions of your roads, the conditions of you can understand, certainly there’s been a lot your bridges and drove the whole program based on that. Those are important of debate about security in the West Street because they certainly bring reliability to the transportation system. What Project that’s going on right now in New York we’ve begun to look at in a different way is going out there and measuring how City. And that’s being repeated across the State, funding is being used for the future. Basically we’re calling them dashboards

New York Transportation Journal The New York Transportation Journal is published by the NYU Wagner Rudin Center for Transportation Policy & Management in conjunction with the Rudin Center’s Adivsory board, Elliot G. Sander, Publisher the Council on Transportation. Allison L. C. de Cerreño, Editor The Rudin Center gratefully acknowledges the foundation, corporate, and individual sponsors that make possible our efforts to promote progressive transportation policy, including the Editorial Board New York Transportation Journal.

John Falcocchio Janette Sadik-Khan The views expressed in the New York Transportation Journal are those of the authors and not José Holguín-Veras Bruce Schaller necessarily those of New York University, the Rudin Center, or any of its affiliated organizations Robert Paaswell Sam Schwartz and funders. Henry Peyrebrune Roy Sparrow Letters to the Editor and other inquiries may be addressed to Allison C. de Cerreño at: Gene Russianoff Robert Yaro Rudin Center for Transportation Policy & Management NYU Robert F. Wagner Graduate School of Public Service Design and Layout 295 Lafayette Street, 2nd Floor Isabella Pierson New York, NY 10012 phone: (212) 998-7545; fax: (212) 995-4611 Email: [email protected] website: wagner.nyu.edu/rudincenter VOLUME VIII NO. 1 FALL 2004 and they’re based on those five areas that west across New York State. If you come I mentioned — the level of resources we across Lewiston-Queenston you pay a lower need to put in to bring forward either toll on the bridge and then you use state economic sustainability or environmental highways, which are not supported by tolls, improvements — and may be different in to get to an interstate highway which is, different areas. For example, certainly again, not supported by tolls to get to your around the Kensico Reservoir it was very destination. So, there’s an impact on the important that we maintain a much higher roads of those communities which were standard for the run-off of water as we were never intended as major trade routes. making improvements on Roadway 684 and other roads in the Kensico area because of We are beginning to look at corridors across the proximity to the major water supply for the State as to whether they’re trade corri- New York City. So a lot of those priorities are dors or whether they’re commuter corri- going to be evaluated differently as we go dors, or just general purpose corridors. We forward to maintain those five priority are going to bring different standards and results areas. measurements to bear for the future on how the funding is allocated. We are going to JSK: You mentioned a couple of innovative have discussions with other agencies, such Joseph H. Boardman was appointed environmental approaches that you’re using as bridge authorities, that seem to stand Commissioner of the New York State and it prompts me to ask about what you are alone in many cases, but impact the trans- Department of Transportation by Governor George E. Pataki in 1997. A native of doing to incorporate sustainable develop- portation system throughout New York State Oneida County and a veteran of the ment into NYSDOT programs? and the region. Vietnam War, Commissioner Boardman had served for two years as Assistant JB: Well, first of all we have participated JSK: You are in the process of developing Commissioner for the Office of Public Transportation and First Deputy right from the beginning in the Lieutenant the transportation master plan for New Commissioner prior to his appointment. Governor’s Task Force on Quality York State in 2025 and have held ten pub- Commissioner Boardman brought to the Communities. What she found out, as others lic meetings to get input from local pub- agency an impeccable record of achieve- ment in more than 20 years of service in on that task force found out, was that trans- lic officials and community leaders on their New York’s transportation industry. portation tended to be the tail to wag the priorities and issues. What are some of dog in every community. There always was the consistent themes, outside of the As Broome County Commissioner of Public some issue, it might be a traffic light issue, land use theme that you just discussed, that Transportation in the 1980s, Commissioner Boardman completely transformed the it might be a roadway issue, and it might be you have heard and what do you plan to do fledgling public transit system into a an access issue. with the results? smooth running model of efficiency. Prior to that, Commissioner Boardman served with distinction as Manager of the Rome One of the important things we found in the JB: The consistent theme, certainly, is the Transportation and Parking Authority and statewide master plan hearings we conduct- need for a stable, long-term, trusted fund- as General Manager of the Utica Transit ed this summer was the level of interest and ing program that works for all modes of Authority. discussion on land use planning in every transportation. But where the rubber hits Commissioner Boardman has launched a community. In many cases, a transportation the road is the balancing act. It’s the series of award-winning initiatives, asset gets overwhelmed by unintended con- challenge for all of us — when you’re trying including the Context Sensitive Design sequences — all the other environmental to balance your budget, but your primary and Environmental Initiative programs that have strengthened the State’s impacts that occur around a project that you need is to move snow and ice off the road. transportation infrastructure while pro- don’t even anticipate. What we’re seeing tecting the integrity of our communities across the State is the need to change the For example, in a town or a county that and natural environment. In November way those kinds of things happen for the truly needs those resources for the future, 2003, Governor Pataki also asked Commissioner Boardman to direct the future. Let me give you an example. one interesting thing that we heard was formation and development of the New that the number of roadway miles in the York State Transportation Federation, In Western New York, we have two bridges rural areas of the counties across the State comprised of the State Department of Transportation and the State Thruway that are basically commercial crossing are increasing, while the population is and Bridge Authorities. The new bridges. One is the Peace Bridge and the decreasing, and the vehicle miles traveled Federation is designed to more closely other one is the Lewiston-Queenston Bridge. are increasing. There are fewer taxpayers coordinate activities among its members, The Peace Bridge has a higher truck fare in the local areas to pay for the mainte- with a goal of creating a more seamless, statewide transportation system. To date, coming across the bridge than the Lewiston- nance of the roadways, the bus systems, the the Federation has developed a new web Queenston Bridge, so we get a lot of railroads, the rail sidings, or whatever is site that provides real time construction, truckers that come across the Lewiston- publicly owned across the State. That is a traffic, and weather information to New York’s traveling public. Queenston Bridge because of the lower fare. common theme. But the Peace Bridge also is connected to the Thruway, which has tolls — the primary If we’re going to continue to have economic way of paying for the Thruway. So when you development, and we are going to have For real time information on NYS come across the Peace Bridge, you are environmental improvement and a reliable construction, traffic and weather, coming across and using the toll facility, please visit: which is the primary trade route east and (Continued on page 16) www.travelinfony.com

NEW YORK TRANSPORTATION JOURNAL 3 4 NEW YORK TRANSPORTATION JOURNAL IN THE REGION

FINANCING THE MTA CAPITAL PLAN

“Largely depending on public

BY ALEXIS PERROTTA investment, there will be a funding gap of at least $2 billion and The Next Five Year Capital Plan possibly as high as $4 billion On July 29, the MTA released its plan to close a $436 million operating deficit in 2005. With attention focused on potential per year for the next five years.” fare hikes and service cuts, the concurrent release of an ambitious five year capital program was largely obscured. The preliminary 2005-2009 plan totals $28 billion: $17.4 billion for core state of good repair, normal replacement and system improvement items; overhaul and more basic upkeep. The expansion projects will $9.9 billion for network expansion projects; and $600 million continue efforts launched in the last capital program to increase for security and interagency programs. MTA stressed that most capacity to the rail network for the first time in 60 years. of the growth of the core program — up from $14.7 billion — was due to inflation. The breakdown among the agencies — 70% Two weeks prior to the MTA plan issuance, Regional Plan toward New York City Transit (NYC Transit), 14% toward Long Association (RPA) produced its own recommended MTA capital Island Rail Road (LIRR), 9% toward Metro-North Railroad program.1 The RPA recommendations exceed the MTA plan in some (Metro-North) and 7% for bridges and tunnels — is nearly identical areas. The report recommended the MTA commit at least $18.9 to the last capital program. billion for core programs and $7.6 billion for network expansion projects. The assumptions behind the core program numbers The main differences between the 2000-2004 program and the were largely based on the 20-year Needs Assessment produced proposed 2005-2009 program are: (1) state of good repair projects by the MTA in 2000, the most recent and comprehensive planning are moving onto a normal replacement cycle; and, (2) there is document available. Specifically, the report recommended larg- more funding allocated for network expansion projects. The er commitments toward four NYC Transit line items which were switch to normal replacement is as expected; as repairs have deemed both significantly under-budgeted in the 2000-2004 program been completed since the 1980s, the system has required less and critical to system reliability, safety and the customer environment: Communications and Signals, Power, Line Equipment, and Passenger Stations. The MTA preliminary plan nears or exceeds MTA Capital Plan Funding Sources the recommendations for each of these items with the exception of Power. Also recommended as part of the $18.9 billion were specific security and system improvement projects, including the LIRR Main Line third track, Bus Rapid Transit (BRT), and high-speed tolls on three bridges. All of these are addressed in the MTA’s preliminary plan with the notable exception of high speed tolls.

RPA recommended committing $7.6 billion for network expan- sion projects in the 2005-2009 capital plan. From this, RPA esti- mates a MTA financing “need” of $3.8 to $5.7 billion. This differs from MTA’s $4.3 billion “need” for two main reasons. First, the MTA assumes the federal government will contribute 50% of the costs for constructing East Side Access and the Second Avenue Subway, while RPA used a range of contributions from 25% to 50%. Second, the MTA included $2.8 billion toward building the first phase of the Second Avenue Subway, while RPA recom- mended committing $3.8 billion to accelerate construction so that service can begin simultaneously with East Side Access, and thus mitigate the demand on the Lexington Avenue line that the East Side Access project is expected to induce. The plan also includes $400 million for engineering analysis of the proposed Lower Manhattan/LIRR link, funding that RPA supports. VOLUME VIII NO. 1 FALL 2004

(Letter from the Editor Cont.) Core Programs: State of Good Repair, Normal MTA 2005-2009 RPA MTA-RPA Replacement and a related op-ed piece, Henry Preliminary Plan Recommendation Difference System Improvement. Peyrebrune calls for the Governor, $ Billions Mayor and State Legislature to assume political accountability for ensuring NYC Transit $12,131 $13,160 -$1,029 that the MTA Capital Program is ade- LIRR $2,426 $2,639 -$213 quately and responsibly financed, as their predecessors did slightly more Metro-North $1,618 $2,013 -$395 than 20 years ago. Bridges and Tunnels $1,255 $1,088 -$167 Janette Sadik-Khan adds to the discus- MTA Total $17,430 $18,900 -$1,470 sion in her interview of New York State Transportation Commissioner Joseph Boardman. Commissioner Boardman Funding Gaps and tax revenues and should logically be has been involved in the reauthoriza- funded with sources that would be dedicated to tion of the federal transportation funds The capital plan will be debated and likely them for the life of the construction period. and state transportation financing revised before it is accepted in early 2005. issues. He comments on these issues This would minimize competition with funding Largely depending on public investments, as well as those related to new areas sources for operating revenues and the core there will be a funding gap of at least of consideration for allocating state program. It would also eliminate the risk that highway funds, and the necessity to $2 billion and possibly as high as $4 billion partially completed projects are abandoned, balance highway funding with basic per year for the next five years. This gap is as has been done in the past, if funding local needs, especially those related to interdependent with the operating deficit, highway maintenance. cannot be sufficiently cobbled together in a due to the trends illustrated in the line future five-year capital plan. graph on the previous page. The capital pro- In another area related to transporta- tion infrastructure, the Rudin Center gram’s reliance on debt has soared while RPA has examined potential new revenue and the Journal have an intense inter- state and local subsidies have declined dra- sources to fund expansion projects, including est in the ability of value pricing to matically. The growing reliance on debt for reduce traffic congestion. The intro- various permutations of tolls, taxes and fees capital funding contributes to operating duction of new technology in recent applicable throughout the region. The deficits that must then be addressed years has made the implementation of potential fiscal and economic impact of value pricing physically easier. Yet the through some combination of subsidy, fare many of these sources has been discussed in acceptability of the concept by the increases or service cuts. Maintaining an reports from the Independent Budget Office2 public, business leaders, and local adequate level of capital investment and decision makers remains a substantial and other research groups. The criteria listed restoring the MTA’s fiscal health need to be challenge. This edition of the Journal below are intended to identify which best fit resolved simultaneously. includes an excerpt of a Rudin Center the purposes at hand. report that analyzes the decision-mak- ing process regarding the Port MTA plans to address the $436 million operating • The source of financing should be closely Authority of New York and New Jersey’s deficit in 2005 with fare hikes and service tied to transportation purposes and to value pricing initiative for its Hudson cuts. Funding strategies to bridge the capital benefits from building the projects. River crossings. plan gap are less clear. A financing strategy • There should be minimal shifting incidence; In the continuation of the Journal’s to fill this breach needs to be sustainable the burden should not get passed on to “The Boroughs of New York” series, since both the core program and expansion another party. Michael Fishman contributes an article projects will require annual appropriations about The Bronx’s Grand Concourse. long after 2009. While debt financing cannot • The burden should be progressive and Fishman writes about the Grand be avoided entirely for this plan, it needs to be affect all persons fairly. Concourse’s place in Bronx history as an innovative, bucolic, early 20th- limited and integrated with any resolution of • The financing mechanism should be century boulevard that once housed the operating deficit. It is not posssible to inflation- and recession-resistant. the Borough’s elite, its disfigurement fund a capital program that even approaches to accommodate late 20th Century the level of need without substantially • Implementing the funding mechanism “high speed” automobile traffic, and increased support from New York State, New should have minimal negative impact on the current vision and plans to restore the boulevard. York City and the suburban counties. regional competitiveness. • The funding source should be politically Finally, MTA Capital Construction New Revenue is Needed feasible. President, Mysore Nagaraja, discusses the MTA's successful incorporation of The financial realities indicate the need for • The funding source should be inexpensive Green Design into its projects. The new, dedicated revenue sources for transit to administer and provide sufficient concepts used by MTA have application expansion projects. East Side Access, the to other transportation providers in the yearly revenue. Second Avenue Subway and future capacity- region. building projects will expand the economy Four main categories of potential revenue We hope that you enjoy reading these sources were evaluated using these criteria. articles and find them informative. Alexis Perrotta is a Planner specializing Each item has its pros and cons. in economic development, housing and transportation at the Regional Plan Association. (Continued on page 15)

NEW YORK TRANSPORTATION JOURNAL 5 6 NEW YORK TRANSPORTATION JOURNAL

EDITORIAL

STEPPING UPTOTHE $1,750 PLATE FOR THE MTA $1,500 $1,250 CAPITAL PROGRAM $1,000 $750 $500 $250 B Y H ENRY P EYREBRUNE, P.E. $0 2003 2004 2005 2006 2007 2008 This October 1, the Metropolitan Transportation Authority (MTA) is required to submit a new capital program for 2005- Source:Projected MTA 2005 Preliminary BudgetGrowth in MTA Debt Service 2009 to the State’s Capital Program Review Board. The draft in millions program submitted to the Board this summer shows that providing the funding necessary to restore the system to a Source: MTA 2005 Preliminary Budget state of good repair, continue normal replacement, and proceed with expansion will be very difficult without new revenues from non-Federal sources. The MTA itself projects a funding gap of $11.3 billion for the core program successes. The billions invested in restoring the City’s transit and $4.2 billion for the expansion projects. The question is, system, and the MetroCard fare structure made possible by who is politically accountable for making the difficult choices those investments have dramatically increased mobility; while necessary to fund the program? How can the public hold investments on the commuter lines have improved the quality of elected officials accountable for the public transportation travel and brought new accessibility to thousands of riders. system and service that results from these decisions? Furthermore, the revived transit system has contributed to new vitality in the region. Numerous economic developments have The capital program’s funding gap exists in the context of been designed around access to transit, and the proposed large deficits in the MTA’s operating budget, which are in part redevelopment of the Far West Side would be hard to the result of growing debt service to cover borrowing contemplate without the solid foundation of a restored system. for previous programs. From 2000-2004, new bonds and a restructuring of existing debt paid for $11.6 billion of the These achievements represent a turnaround hardly imagina- $17.9 billion program, while the City contributed $450 million ble in the early 1980s and require a sustained investment and the State nothing at all. (The Federal government of tens of billions of dollars. Yet with no funding in sight kicked in most of the rest.) As a result, even before to fill the 2005-2009 funding gap, let alone to meet the considering any new borrowing for the next program, debt ballooning operating deficit, these gains are at risk. One service payments are expected to jump from $800 million in has only to look back two decades to see the damage inflict- 2003 to $1.7 billion by 2008. To close its operating deficit ed by inadequate funding. In 1980, the MTA estimated the next year, the MTA has proposed a fare increase that would replacement value of the subway and buses in 1980 to be $40 come just two years after the base fare was increased by billion; yet less than $140 million was being committed each 33% and the average fare by 19%. Along with some painful year for capital maintenance. Without adequate funding, the service cuts, this increased contribution by riders would system nearly collapsed: the subway suffered derailments balance the budget. But the deficits are projected to grow every 18 days and trains routinely arrived late, if at all. even larger in 2006 and 2007 and require additional action. Graffiti covered every surface, stations and cars were poorly As Andrew Albert, a nonvoting member of the MTA lit, and crime was rampant. On the commuter lines, the sit- Board, told The New York Times, “The picture in ’05 is bad. uation was hardly better; riders suffered standing-room-only But ’06 is horrendous.” conditions in stifling heat as air conditioning equipment failed routinely. Subway and bus ridership plummeted and The 2005-2009 capital plan proposed by the MTA the public transportation system was on the brink of failure. would continue the transformation of the system that began with the first five-year plan in 1982. The rescue Action to rescue the system and to provide the necessary of the subway and commuter lines from the brink of collapse funding at historic levels came from the Governor and the and the subsequent resurgence in performance to levels State Legislature. The State government recognized that public not seen in decades (if ever) are among the region’s key transportation was vital to the fiscal health of New York City VOLUME VIII NO. 1 FALL 2004 and the metropolitan region and that, increases), and the 2005-2009 Capital MTA Current Capital in turn, the fiscal health of the State Program. Since the 1980s, the State share of Program 2000-2004 depended on the vitality of the City and the the capital program has gone from 15% in (billions) region. The Governor publicly stated that direct subsidies to 0%. The City share has he wanted to be held politically responsible likewise dropped from 10% to 3%. Neither for the MTA. When the first capital pro- State nor City have identified sources for Core Program $13.7 gram was approved, the State government the funds that will be needed to close the Network Expansion $3.8 was actively involved in providing significant looming deficits in the capital program and Security $0.6 funds for the program. The MTA Capital the operating budget. The Capital Program Other $0.8 Program Review Board was established with Review Board continues to meet to approve WTC Recovery $0.2 appointed representatives from the or reject components of the plan but has not Total $19.1 Governor, the New York Senate Majority, succeeded at developing new funding for the New York State Assembly Majority and the program in recent years, as reflected in the reduction of State and City support. Finally, the staff at NYSDOT that monitored the Funding Sources progress of the capital program for the 2000-2004 “The rescue of the subway Board has been dismantled and NYSDOT no (billions) and commuter lines from longer performs this function for the Board or for the public. Federal Formula Grants $4.3 the brink of collapse and Federal New Starts $0.6 the subsequent resurgence in To be sure, the issue is not oversight of Federal Lower the MTA but accountability. The MTA Manhattan Funds $1.3 performance to levels not itself has several oversight mechanisms, Bonds $7.0 beginning with the Board, comprised of 17 Debt Restructuring $4.5 seen in decades (if ever) members with the Governor appointing the New York City $0.5 are among the region’s key largest number. The MTA’s Permanent Other $0.9 Citizens Advisory Committee, the State and Total $19.1 successes.... The revived City Comptroller, and the State Legislature all pour over the Agency’s management transit system has and finances and have issued numerous reports documenting the MTA’s unsustain- contributed to new vitality able funding mechanisms. Yet none of MTA Proposed Capital in the region.” these provide the public with the level of accountability that was envisioned and Program 2005-2009 practiced in the 1980s by the Governor, (billions) Mayor and State Legislature. City of New York. Non-voting members of Core Program $17.4 the Senate Minority and Assembly Minority Before making the important decisions Network Expansion $9.9 were also appointed. The New York State facing the region on the next capital pro- Security, Interagency $0.6 Department of Transportation (NYSDOT) gram and possible fare increases, there Total $28.0 provided staff for the Review Board. Regular should be public dialogue on how to create public meetings were held to review political accountability for these actions. progress of the capital program and to con- How can the Governor, Mayor and State sider and approve changes necessary in Legislature be brought back into a position Projected Funding Sources funding and project priorities. Special meet- of greater responsibility for public trans- (billions) ings and public hearings were held to portation in this region, including adequate address specific problems and issues. The funding? Should the existing mechanisms Federal Formula Grants $5.9 results of these meetings were well for oversight be restructured to provide Federal New Starts reported by the media, and the Governor, both public and political accountability? (assumes 50% match) $5.7 the Legislature and the Mayor shared Should the region transition to an elected Homeland Security $0.5 political accountability. Regional Transportation Board as is done in Total $12.1 some other parts of the country? While this Contrast that with the situation this year as article does not propose a particular the MTA approaches critical votes on both solution, it is clear that the political the operating budget (including possible fare structure of the State, region, and City Funding Gap $15.9 billion needs to step up to the plate. Henry Peyrebrune, P.E., is a Transportation Consultant, and a Visiting Practitioner at the Rudin Center for Sources: MTA, 2000-2004 Capital Transportation Policy & Management. Program (December 2003); and MTA Preliminary Capital Program, 2005-2009

NEW YORK TRANSPORTATION JOURNAL 7 8 NEW YORK TRANSPORTATION JOURNAL THE BOROUGHS OF NEW YORK: THE BRONX THE GRAND CONCOURSE: HISTORIC, VISIONARY, ABUSED AND RE-IMAGINED

B Y M ICHAEL F ISHMAN

A Brief History Spanning over four miles along the crest of a ridge in New York City’s borough of The Bronx lies the Grand Concourse. This 182-foot wide boulevard embodies the identity crisis of the American urban roadway throughout the Twentieth Century. Designed by Louis Risse, at the turn of the last century, the Concourse saw as clearly into the future as it respected the past. Successfully bridging the 19th and 20th Centuries, Louis Risse’s Grand Concourse connected the bucolic great European boulevards of the 1800s with the anticipated technological sophistication that has come to define the American land- scape. A monumental innovation was the introduction of grade separation where major streets crossed its path.

At its time, the Grand Concourse was received as the pride of The Bronx. Risse’s success attracted the most sophisticated architects and developments in the early 20th Century and resulted in one of New York City’s finest collection of housing, public buildings and parks. The collection of Art Deco residences built along the Concourse is the largest in the world. These Courtesy of the Bronx Borough President’s Office dwellings with spacious interiors, luxurious appointments and uniformed doormen attracted some of the wealthiest people design was disfigured for wider vehicles, higher speeds and living in New York City. For those in The Bronx, living on the safety. Its dirt-covered center roadway was paved, the center Grand Concourse was a badge of economic and social success. median was eliminated, trees removed and “slip-on” and “slip- off” cuts were made in the medians. Within the first decade of the Grand Concourse’s completion, the introduction of mass production led to the first surge in Today the original vision for the Concourse is almost automobile ownership. Nobody, including Risse, could have unrecognizable. The Concourse’s bucolic environment has dis- anticipated the magnitude of the impact that came with the appeared. It has become 10 lanes of traffic with speeds often advent of the automobile. Struggling to balance the needs of above 55 mph that separate one side of the Grand Concourse pedestrians and vehicles, aesthetics, uses and safety, the from the other. Pedestrians crossing the wide boulevard find the Concourse is a prime example of the common problems facing journey increasingly hazardous. Like it or not, the Grand urban streets all over the world. Concourse became an integral part of New York City’s modern arterial network. Throughout the 20th Century, the Grand Concourse boulevard The Grand Concourse Vision Project — Community Based Design Recognizing that the positive attributes of the Concourse were almost completely lost, the Office of the Bronx Borough President ini- “Today the original vision for the tiated a planning and reconstruction process in 1998 focused on the Concourse is almost unrecognizable. physical, social and economic rejuvenation of the Grand Concourse. The Concourse’s bucolic environment Today’s Grand Concourse is characterized by segments composed th st has disappeared.” of institutions between East 138 Street and East 161 Street, a commercial area between East 187th and East 192nd Streets, and VOLUME VIII NO. 1 FALL 2004

Rudin Center Concourse History Highlights

SAVE THE DATES

Tuesday, October 26, 2004 8:30 a.m. - 12:45 p.m.

5th Annual Tri-State

1892: Original Plan 1918: Urban Arterial 1960s: Modern Highway Transit Symposium One row of trees removed “Slip-on” and “slip-off” ramps installed between roadways Critical Issues: The Financial Future of residential zones located from East 161st to • Restore the Greenway Environment, Transit in the Region and East 187th Streets and from East 192nd to thereby reclaiming the original Parkway the Prospect for Bus Rapid Mosholu Parkway. intentions for the Concourse, linking Transit in New York parks and serving the Borough as the Sam Schwartz LLC was employed by the premier element of unification. Office of the Bronx Borough President to Tuesday, November 16, 2004 engage an enthusiastic community of resi- These five principles were then applied 8:00 a.m. - 3:00 p.m. dents and business people in an interactive specifically to segments of the Concourse. planning process hosted by the Borough These segments were described as each Highways and Streets President. The process included meetings having a specific character unique to its Conference with all the community boards covering the location and function along the Concourse. Grand Concourse corridor and a series of Each section was considered separately The Challenge of public meetings that made use of unique with adjacencies and synergies in mind. Congestion in the New formats and materials. The meetings resulted Suggestions for each section were made and York Region in a collective vision and the establishment many suggestions were made for the entire of five principles for community-based roadway. This was seen as a long-term wish list for improvements for each section of projects and designs that serve as a guide For more information the concourse. in planning the future of the Concourse. on either event, These principles are: please call 212-998-7545 or visit Current Developments on the Concourse • Restore the Concourse based on the our website at: wagner.nyu.edu/rudincenter needs of future users with a healthy Subsequent to the community-based initiatives, respect for historical styles and functions, the City has become a major player in shaping the including the role of the Grand Concourse future of the Concourse. With four projects as the preeminent ceremonial space for currently funded, the Grand Concourse is on the road to an eventual return to its original FEATURED REPORTS The Bronx. stature. These projects are: • Provide a safe experience for all High-Speed Rail Projects in Concourse users by calming vehicular Reconstruction of the East 161st Street/ the U.S.: Identifying the traffic without diverting significant traffic Grand Concourse Underpass Elements for Success volumes to adjacent Street networks. The New York City Department of Interim Report - • Celebrate the different character of Transportation will demolish the existing Preliminary Review of Cases and Recommendations for Phase 2 each segment along its length and create underpass, deemed unsafe due to falling a ‘sense of place’ by marking Gateways concrete debris. The new plans will allow for to and from the Concourse. the underpass to be replaced with an aesthetically pleasing non-arching tunnel. Evaluation Study of the • Develop and enforce Neighborhood The East and West Portals and entrances to PANYNJ’s Value Pricing Preservation Guidelines to ensure that the tunnel will be decorated in concurrent Initiative: Task 5 - commercial and residential tenants and artwork and architectural detail. There is Monitoring of Media & landlords take responsibility for main- also an element in the planned construction Decision-Maker’s Reactions taining the Concourse as a symbol of the to improve the surrounding streetscape and vitality of The Bronx. sidewalks (including the new Court Complex further detailed below), allowing for pedes- Michael Fishman is an Urban Design/ trian access through the new tunnel complete To download either report, please visit our website at: Insfrastructure Consultant and Adjunct with redesigned stairways opening at street Professor at Columbia University. wagner.nyu.edu/rudincenter (Continued on page 14)

NEW YORK TRANSPORTATION JOURNAL 9 10 NEW YORK TRANSPORTATION JOURNAL

SURFACE, AIR, AND WATERWAYS: FOCUSING IN

GREEN TRANSPORTATION INFRASTRUCTURE FOR NEW YORK CITY

B Y M YSORE L. NAGARAJA

As New York City’s mass transit system turns 100 years In the last decade, NYCT became interested in developing a old this year, the reality of incorporating green building proactive approach to addressing some of the environmental design principles and environmental responsibility into its issues that were being encountered. Looking for ways to improve major infrastructure and expansion projects reflects a turn public trust and establish a policy goal of proactively exceeding around by a system that was once notoriously labeled for its regulatory requirements, NYCT Department of Capital Program deteriorating infrastructure and feeling of abandonment. Management (CPM) strengthened its construction procedures with Today, implementing positive and proactive changes in support the objective of reaching International Organization for of green building design seems prudent in keeping Standardization (ISO) 14001 Environmental Management System abreast of the ever evolving social and environmental (EMS) standards. In March 1999, CPM became the first public serv- demands of the present day. ice entity within the United States to obtain certification. Working under the auspice of “environmental excellence” and Green building design takes into account the effect of standing as a fundamental pillar of CPM’s business objectives, the building on the environment and minimizes negative CPM augmented risk management, improved environmental per- impacts to the planet. The goal is to achieve a climate neutral formance and encouraged continuous improvement for a more effect on the environment. Improved daylighting, quality high- effective system. efficiency lighting, better indoor air and an efficient use of materials and resources are some of the benefits of green Soon after achieving ISO14001 EMS certification, green design at building design practices. NYCT came as a potential ISO14001 objective and target. This proved to be at the most opportune time when there was a clear At a glance, New York City Transit (NYCT) subway and bus and decisive need for improvements in the way pollution preven- operations is expansive, comprising roughly 4,200 buses, 6,200 tion and natural resource consumption were addressed in the subway cars, 814 miles of linear rail track, 48,000 employees, building and construction industry. Design for the Environment an operating budget of 4 billion dollars, and a multitude (DfE) was adopted for implementation, and addressed such concerns of infrastructure — all necessary for supporting a mass transit as energy efficiency, indoor environmental quality, conserving operation of this magnitude. materials and natural resources, optimized operations and main- tenance, and water conservation and site management.

The 145 kilowat photovoltaic canopy at the Stillwell Avenue Terminal in Coney Island, completed in May of 2004, is an example of a renewable energy project undertaken by NYCT.

Courtesy of New York City Transit VOLUME VIII NO. 1 FALL 2004

RUDIN CENTER SUPPORTERS, 2004

The NYU Wagner Rudin Center for Transportation Policy and Management acknowledges the following entities for their generous support in 2004.

Benefactors Rudin Family Con Edison New York State Laborers’ Employers’ Cooperation and Education Trust Fund University Transportation Research Center

Sponsors and Contributors ACS State and Local Solutions, Inc. DMJM + HARRIS Federal Highway Administration Section of the Roosevelt Avenue/74th Street Intermodal Complex, Mark IV, IVHS a NYCT subway and bus terminal planned for Flushing, Queens Metropolitan Transportation Authority DfE afforded innovative designs and exem- non-road construction equipment during New Jersey Turnpike Authority plified the fact that greening is possible for construction to protect air quality. any infrastructure, and not limited solely to New York Metropolitan Transportation Council buildings. Today, every capital improvement The 8.5 mile Second Avenue Subway project project undertaken by CPM and MTA Capital utilizes state-of-the-art green design tech- Parsons Brinckerhoff, Inc. Construction (MTACC) is evaluated for green- niques and will benefit transit riders on The Port Authority of NY & NJ ing opportunities. Manhattan’s East Side. The design will explore clean alternative energy sources (such as a Patrons and Friends As evidenced by almost five years of DfE geo-thermal heat exchange system) and AAA Automobile Club of New York include an aluminum third rail utilizing a saw- implementation efforts, the rewards of the ARUP commitment to the environment have begun tooth profile* to significantly conserve energy. to emerge. On June 29, 2004, two major MTA In addition, station entrances will be situated Booz Allen Hamilton construction projects were chosen among to both take advantage of increased tunnel Edison Properties, LLC five winners of the City’s first Green Building ventilation and natural lighting. Also care- Empire State Development Design Competition: Roosevelt Avenue/74th fully thought out was the management of General Contractors Street Intermodal Complex in Flushing, 7 million cubic yards of spoils that would be Association of New York, Inc. Queens, managed by New York City Transit, generated from tunnel excavation. The and the Second Avenue Subway, managed by spoils would be diverted from landfills for International Union of Operating Engineers, Local MTACC. A third NYCT project, the new beneficial reuse in applications such as high- Union 15, A-D Corona Maintenance Shop, received an way construction, railroad ballast, shore Honorable Mention. protection, marine habitat restoration and LiRo Group recreational areas. New York Building Congress The Roosevelt Avenue/74th St. Station reha- NY Waterway bilitation project won on its merits as an The New Corona Maintenance facility was PACO Group environmentally friendly intermodal facility. heralded as the first green train mainte- As NYCT’s first attempt at greening a major nance facility in the United States. Its Parsons capital project, this facility boasts of a pho- Honorable Mention noted its innovative Constantine Sidamon-Eristoff design to collect rain water for washing train tovoltaic station canopy, and energy effi- STV Incorporated ciency through natural lighting and natural cars, natural ventilation and lighting, and ventilation. This project also incorporates use of photovoltaics and fuel cells. Thornton Tomasetti Group recycled content building materials, 86% TransCore recycling of demolition construction waste, In addition to the introduction of DfE at Transport Workers Union of and is noted as one of the first in New York NYCT, other beneficial programs have America emerged which are projected to result in City to incorporate the use of ultra-low sulfur Transport Workers Union diesel fuel and diesel particulate filters in significant environmental improvements: Local 100 environmentally responsible procurement and energy conservation. Environmentally Turner Construction Mysore L. Nagaraja is President of URS MTA Capital Construction. (Continued on page 15) Washington Group

NEW YORK TRANSPORTATION JOURNAL 11 12 NEW YORK TRANSPORTATION JOURNAL RUDIN CENTER RESEARCH

EVALUATION STUDY OF THE PORT AUTHORITY OF NY & NJ’S VALUE PRICING INITIATIVE

BY ALLISON L. C. DE CERREÑO, PH.D.

Part of a larger study, led by Principal Investigator Professor José Holguín-Veras (Rensselaer Polytechnic Institute), intend- ed to assess the behavioral impacts produced by the Port Authority of NY & NJ’s value pricing initiative, the NYU Wagner Rudin Center for Transportation Policy & Management under- took a descriptive analysis of the decision-making process to gauge the acceptability of value pricing to opinion leaders and decision-makers before and after implementation of the new toll schedule. Two primary sources of information were utilized for this component of the project: (1) interviews with the key stakeholders, opinion leaders, and decision-makers involved in the process; and, (2) an intense review of media statements both prior to and immediately following implementation of the new toll schedule. What follows here is an excerpt of the report, currently available on the Rudin Center website. Courtesy of the Port Authority of New York & New Jersey Background Toll plaza on the George Washington Bridge The concept of value pricing* on roadways has been gaining support for several years now both around the United States tures that place undue burdens on lower income individuals, and worldwide. While applying value pricing to transportation among other concerns. was first described by William Vickrey in the 1950s, the tech- nologies necessary to implement his ideas did not exist at that In 1975, Singapore became the first country to experiment time. Over the ensuing decades, value pricing has come to be with value pricing. Countries in Europe soon followed, with used by many other industries — electric utility companies Norway (1986-1991), Paris (1989-1991), and most recently charge more in peak periods, restaurants offer “early bird” London, all implementing different variations on the theme and specials, and commuter rails have long been offering peak and meeting with generally positive results. The first value pricing off-peak fares — but the use of value pricing on roadways is effort successfully implemented in the United States was still a relatively recent application. Proponents argue that launched in December 1995 in Orange County, CA. It was soon value pricing is the key to reducing congestion in a world followed by additional projects in California, as well as in Florida where we can no longer build ourselves out of traffic. and Texas, with New Jersey introducing its own variation on the Detractors point to privacy issues and regressive fare struc- New Jersey Turnpike shortly before the Port Authority’s announcement of its own plans.

The Port Authority’s value pricing initiative is, to date, one of the “The initial assessment reveals most ambitious efforts launched in the United States, not only with respect to the numbers of people affected and the volume of that those who were supportive of traffic utilizing Port Authority facilities, but also in its attempt to change a culture that had for many years rewarded commuters value pricing have remained so traveling in peak periods. It is also very different from most of the and those who opposed value pricing earlier U.S. examples since it added no new capacity and provid- ed no free alternatives as did the 91X project in Orange County, in this region have not changed CA, for example. Whether or not the initiative turns out to be successful with respect to changing travel behavior remains to be their stance.” seen and is the focus of the larger study mentioned above. However, in implementing the plan in the first place, the Port VOLUME VIII NO. 1 FALL 2004

Authority managed to overcome a major Terms and Definitions hurdle since many value pricing schemes throughout the country have been derailed long before they reached the stage of imple- Though often interchanged, mentation. Thus, the question of accept- the terms variable pricing, ability becomes an interesting issue. What congestion pricing, and value pricing do have slightly different was it that allowed the plan to pass here meanings... and would other value pricing initiatives be acceptable as well? Variable pricing, the most general phrase, simply means that prices Broad Findings fluctuate.

The purpose of this report was to gauge the Courtesy of the PANYNJ Congestion pricing signifies that acceptability of value pricing to opinion the prices fluctuate based on E-ZPass and cash lanes on the demand, with lower prices at off- leaders and decision-makers before and peak times. after implementation of the new toll sched- George Washington Bridge ule. The initial assessment reveals that Value pricing implies some addi- tional benefit to those paying those who were supportive of value pricing prised when the final plan was implemented. premium prices. have remained so and those who opposed value pricing in this region have not changed Integration of stakeholders at the beginning ...There are also different pricing their stance. Thus, additional attempts at and during the process is key. By having a schemes* used to approach value value pricing in this region are likely to process where stakeholders were involved pricing. In the United States, all meet with similar resistance and support. of the examples tend to utilize early on and discussions were held through- point pricing. However, this statement is tempered by the out the debate, plans could be modified and fact that the ability of the Port Authority to language could be changed as needed to gain implement the new toll schedule is likely to Point Pricing refers to charging a additional support. toll as a vehicle passes a point on add leverage to other attempts, especially if the roadway during congested the data demonstrate a positive impact. Consistency in language and goals is hours. important. Much of the Port Authority’s value Cordon Pricing is a variant of As to gauging acceptability of value pricing pricing concept was lost in the print news point pricing in which an imagi- initiatives outside this region, the Port media as they focused on the toll hikes nary cordon is drawn around a congested area and charge points Authority example cannot easily be extrapo- alone. Then, possibly because the Port established at all the points of lated. In different regions where value pric- Authority began to change its own language, entry or exit. ing is introduced, the politics, economics, there was additional lack of consistency when Zone Pricing requires that all and social frameworks are different. referring to the plan. vehicles traveling into a congest- Further, the way value pricing is accom- ed area pay a special fee, includ- plished can vary from place to place. What ing those vehicles traveling Ongoing discussion and follow up is important. exclusively within the congested likely made the California projects more Several people noted their surprise that it area, thus distinguishing it from acceptable, for example, was the existence had taken so long for any type of follow up cordon pricing. of non-tolled alternatives as well as the added on the new toll scheme. For the groups that Distance Traveled, or distance- capacity — something that did not exist with had opposed the plan, this has translated based pricing, determines the the Port Authority example. Nevertheless, into ongoing distrust that any of their concerns charge based on the distance some broader lessons from the Port traveled within a congested area will be eventually integrated as the Port or facility. Authority experience can be shared. Authority moves ahead. Pricing Based on Time Spent Obtaining the political support of key charges vehicles based on the Finding value may still be important. number of minutes spent travel- leaders within the organization and at Because opposition to the plan remains, any ing, with the rate potentially the State level was critical. The New modifications of the initiative may meet with varying by location, time of day, or vehicle type. Jersey Department of Transportation leader- resistance. One way to move beyond this is ship, for example, was effective in communi- to look for effective ways of adding value for Congestion-Specific Pricing is cating the new toll plan and its alternatives both commercial and passenger traffic. based on both time spent and dis- tance traveled, with the charge to the Governor’s Office. rate per mile based on the speed The full report can be found at at which the vehicle travels. Education of the media and the public www.wagner.nyu.edu/rudincenter, and was important. This helped to generate an information on the larger study being * open and public debate so nobody was sur- José A. Gomez-Ibañez and Kenneth conducted by Rensselaer Polytechnic A. Small, “Road Pricing for Institute can be found at Congestion Management: A Survey Allison L. C. de Cerreño, Ph.D., is www.rpi.edu/~holguj2/pa/index.html. of International Practice,” Co-Director of the Rudin Center for Synthesis of Highway Practice 210. Transportation Research Board, Transportation Policy & Management at National Cooperatvie Highway the NYU Robert F. Wagner Graduate * The term “value pricing” is used as the default Research Program. Washington, phrase here since this is the term the Port DC:National Academy Press, 1994. School of Public Service. Authority of NY & NJ used to describe their initiative.

NEW YORK TRANSPORTATION JOURNAL 13 14 NEW YORK TRANSPORTATION JOURNAL

(Grand Concourse Cont.) level. The Arts Commission and Parks Department, as well as all Related Improvements other necessary agencies, have already given their approval and Other facilities and infrastructures in the vicinity of the Grand construction is expected to start in 2005. Concourse are undergoing investment. The Morrisania area, located just west of the Borough’s civic center along East Reconstruction of the Grand Concourse from East 161st St. st to East 166th St. 161 Street, is experiencing major investments by the Federal, State, and City governments. Using similar urban design amenities, this project incorporates landscaped medians and bikeways to be positioned along The three-block site of the 1.2 million square foot Bronx the Concourse from East 161st Street to East 166th Street. Criminal Court Complex, is making way for 62 courtrooms for Congressman José Serrano secured a $10 million grant for the Supreme and Criminal Courts and office space for the the project, increasing the greenery and returning clout to Department of Corrections, the Department of Probation, the pedestrians. Bronx District Attorney’s Office, New York City Police Department, and contract agencies. Parking for four hundred Lou Gehrig Plaza Restoration cars will be provided. The Bronx Museum is also expanding its The site, which is currently used for Bronx Criminal Court facilities. Parking, will be transformed into a public plaza/meeting place and contain extensive greenery. The Plaza is being recon- Returning the Grand Concourse to its Original Stature structed with the assistance of a landscape-urban design team. The Concourse was denied designation as a national historic landmark even though the residential and institutional building Joyce Kilmer Park Redevelopment stock along its banks is protected. The traditional boulevard Joyce Kilmer Park is currently in the second phase of its three- treatments of the Concourse were removed or allowed to decay phase redevelopment plan. The community based design to such a degree that the roadway itself has been forgotten as effort initiated the movement of the Lorelei Fountain an innovative and historically significant part of our City and from the north end to the south end of the park and nation’s infrastructure. However, the Concourse seems to be added a “European style fence and flowers.” The first finally gaining the recognition it deserves. phase was completed in 1999 with joint funding by Mayor Rudolph W. Giuliani, Bronx Borough President Fernando Ferrer, Preservation is not simply restoration, and creative solutions go and the City Council, as well as a donation from the Stephen beyond aesthetics. Preservation is the basis for connecting the and Anna-Maria Kellen Foundation. The Lorelei Fountain, fully roadway’s history to the diversity of its present population and restored, has seen increased visitation, become a popular lunch a future yet to be determined. The restoration of historical spot, and a favored area for wedding pictures. geometries, tree plantings, appropriate lighting fixtures and adjacent amenities are a great place to start. It is important The spirit and pride of the community are fundamental to to preserve the innovative spirit that the Concourse has the revitalization of the concourse. Various agencies and epitomized as well. In so doing, we must see into the future as interest groups have made gallant efforts. The Bronx Louis Risse did over a century ago to anticipate needs and find Borough President’s Office has actively remained a driv- creative solutions. As the birthplace of grade separation, ing force behind the revisioning of the Grand celebrating the gateways of the Concourse is of utmost Concourse. In addition to imploring funds and rallying importance. In addition, the latest in traffic calming and for development projects, they have restored the Green Intelligent Transportation Systems must be employed to main- Market to the street side of the Grand Concourse at East tain existing levels of service for traffic while dramatically 192nd Street and are organizing a 2009 Centennial Event improving the experience of pedestrians and local residents. for the Concourse. The Bronx Council on the Arts has introduced the Bronx Cultural Card. This card offers busi- The Grand Concourse is an historic boulevard; it can act as nesses a chance to broaden their reach through the pro- a bridge to the future of The Bronx now as it did early last motion of borough-wide marketing initiatives, while century. This is a massive and challenging endeavor. The card-holders gain access through discounts and promo- renaissance of the Grand Concourse will continue to play a tions that include tours of the architectural splendor of unique role in this evolution of The Bronx and the City overall. the Grand Concourse, local eateries and area galleries. A The participatory visioning process has provided a unique poten- Bronx Culture Trolley was established in 2003, using tial to generate the consensus, quality of design and excitement a 19th-century replica trolley coach to provide free tran- needed to bring several projects to fruition. This is only the sit service to museums, art galleries, theatrical perform- beginning; by combining a framework that includes ongoing ances, restaurants, music performances poetry readings, community participation and design insights of the world’s etc. Recently, the Residents of Hunts Point in conjunction finest professionals, the Grand Concourse will once again with Greening for Breathing sponsored a tree planting be a prideful, beautiful and historic roadway, the symbol of a program, in honor of September 11th. The Living community’s social, economic and cultural renaissance. Our Memorial Trail, as it is dubbed, is restoring trees along task is to honor the Concourse’s place in history and to create a four blocks of the Concourse. future of historic consequence for its inhabitants. VOLUME VIII NO. 1 FALL 2004

(Financing the MTA Capital Plan Cont.) COUNCIL ON TRANSPORTATION

Traffic Pricing3: A number of improvements ridership, which has made possible the Representing major private and non- could be made to the City’s tolling policy on economic expansion that has added nearly profit sector organizations, the vehicle entries to Manhattan, such as tolling 700,000 jobs to the MTA region. To build on Council on Transportation is a trucks evenly across all bridges, creating these achievements, the City, State and bipartisan group created by the Rudin Center, committed to improving incentives for congestion reduction through MTA need to consider sustainable new transportation in the downstate New financing mechanisms. Bold political leader- time-of-day pricing, and tolling the East York region, especially in New York River bridges. These are very closely tied to ship, and once again tremendous foresight, City. The Council acts as an Advisory transportation, there is great potential for will be required to ensure the future Board to the Rudin Center. raising revenue, and pricing may have the maintenance and expansion of this region’s added benefit of reversing negative traffic transit system. The economic importance of Steve Greenfield, Chair trends in many neighborhoods. However, this goal is indeed immense and will require Constantine Sidamon-Eristoff, traffic pricing may be politically difficult, equitable, broad-based solutions. Vice Chair and questions of equity would need to be resolved. Elliot Sander, Executive Director 1. “An Assessment of the 2005-2009 Capital Needs of Mobility Fee: Some version of a commuter the Metropolitan Transportation Authority” (July 2004) Richard Anderson available online at http://www.rpa.org/pdf/MTACapitalfinal.pdf. tax, or a small portion of payroll from workers Regina Armstrong in the MTA region, could raise considerable 2. IBO, “Budget Options for New York City” (February Deborah Beck 2004) is available online at http://www.ibo.nyc.ny.us. revenue progressively. The connection Allison L. C. de Cerreño between business and transportation is clear 3. RPA’s report, “An Exploration of Motor Vehicle Louis J. Coletti Congestion Charging in New York,” is available Thomas Diana (although not as clear as with tolls) as online at http://www.rpa.org/pdf/eno_summary.pdf. employers want to remain centrally located John Dionisio and help shorten their employees’ commutes. Beverly Dolinsky William Fahey Political feasibility is questionable, economic (Green Design Cont.) John Falcocchio impacts would need to be considered and Michael Francese revenue may be unstable as these taxes can responsible procurement takes into account Alan Friedberg be sensitive to recession. the impact of the product or services on the William Galligan environment and helps in greening the Gas Tax: The MTA already receives a portion Louis Gambaccini supply chain. Energy conservation finds of the petroleum business tax paid by several Sonny Hall ways of modifying existing systems and large oil importers in the region. A tax on Gregory Hodkinson operations to maximize efficiency and gas closer to the pump would be tied to José Holguín-Veras reduce consumption. transportation and, given the higher Mike Horodniceanu incomes among many drivers in the region, an Arthur Imperatore, Jr. The legacy of environmental excellence argument for the progressiveness of a gas tax Brian Ketcham established at NYCT/CPM flourishes to date. can be made. However gas taxes are notori- Carolyn Konheim In fact, the development of NYCT/CPM’s ously unpopular. From a regional perspective Floyd Lapp environmental program played a key role in it may also be irrational to further increase Thomas Maguire guiding the “environment” to become a the difference between New Jersey and New Francis McArdle strategic business objective for NYCT busi- James Melius York gas prices. ness planning. This further evolved into a Mitchell Moss Drivers License/Car Registration Surcharges: corporate commitment on sustainability and Robert Paaswell Residents of the region, depending on where marked NYCT as the first public transport Anthony Perl they live, may pay various amounts at entity in North America to sign onto the Henry Peyrebrune different times to register vehicles and prestigious International Association of Steven Polan renew drivers’ licenses. Surcharges on any Public Transport (UITP) Charter on Lucius Riccio of these would be closely tied to transporta- Sustainable Development on Earth Day 2004. William Rudin tion, however very large increases to the Gene Russianoff fees already established would be necessary With the pioneering of DfE by NYCT/CPM, Janette Sadik-Khan to raise enough funds to have a significant green transportation infrastructure for New Ross Sandler impact on the MTA. York City is truly attainable and is becoming Bruce Schaller a reality. As the newly formed MTA Capital Samuel Schwartz Dom Servedio Although it appears it will be difficult to Construction agency will oversee all major MTA mass transit expansion projects in New Roy Sparrow implement new financing strategies to support Marilyn Taylor the much-needed MTA capital program, the York City, green infrastructure will comple- ment the City’s overall goal of making this Ben Thompson region’s history shows that strong leadership Roberta Weisbrod city one of the greenest in America. can find a way to overcome such difficulties. Michael Weiss In the last 22 years, leaders with tremendous * The saw tooth profile is analogous to a roller Robert Yaro foresight rescued and rebuilt the largest coaster. When the train leaves the station it Michael Zetlin transit system in the country. Over $48 travels down an incline using potential energy Rae Zimmerman (stored energy) to create kinetic energy (move- billion was committed to this effort. The ment). On its way back up to the other station, Jeff Zupan result is improved mobility and increased kinetic energy is converted back to potential energy to repeat the process.

NEW YORK TRANSPORTATION JOURNAL 15 THE STATE OF TRANSPORTATION IN NEW YORK CONT. AID (Continued from page 3) P U.S. POSTAGE NEW YORK, NY PERMIT NO. 7931 transportation system, we need to figure embraced by the department. It is winning NON PROFIT ORG. out a consistent way for paying for the almost all of the Federal Highway system for the future. Part of that can be by Administration’s roadway awards in the debt funding, but we’ve begun to rely too country. The reason is that the people of this much on debt funding. department are dedicated to leaving things better than they found them. I am proud of And so, we are consistently hearing that we the people in this department who accepted need to have a sufficient amount of money that challenge to make improvements in the to maintain our assets, and to make the way we do our work. improvements for the future that are absolutely required for economic develop- So that is what I am most proud of, it’s ment and for environmental improvements the people here, the expertise — I’m no and reliability of our transportation system. engineer, I’m no civil engineering expert. I have been able to find the professionalism I think people have been thoughtful. For and the expertise here to meet any example, I think it was the County Executive challenge. I would include the MTA and in Chemung County that really talked about the aviation, rail, and freight entities in how the conversion of Route 17 to I-86 has this box. You know, today we are really been a major economic boom to Chemung. talking about more of a federation than we I think he also understood the need to are a department, even though we each have balance aid to the local transit system and our own identities. the aviation service that is available for the community. So, I think there was a common In the future we are going to have to work theme, not only of the need to address harder to deliver a seamless transportation land use questions and funding and long- system, one that reduces the hassle for term planning, but also there was an under- business people to the extent that we can so standing that this has to be a transportation that we have a one-stop permitting process. system that’s balanced. We are trying to get that done right now, to take advantage of the technology that is out I also heard continually about the need for there and is available. Information today is intercity passenger services whether they be very, very tough because there’s so much of rail or whether they be bus. We heard the it and on our information exchange network. need to move as much of the freight as we We have just unveiled a new website, can by rail, even though there was an under- www.travelinfony.com, to see what’s going standing that with the potential projected on with construction and find out where the growth, truck traffic was going to increase, difficult parts of weather were on the highway. there was a need for us to concentrate our efforts so that we had as much of that We also have a playbook for big events such coming by rail as possible. as the Republican National Convention in late August. We set up a transportation operation JSK: What are the accomplishments that center — a command center that kept an eye you’re proudest of and what’s your vision for on all the transportation activities going on, NYSDOT in the years to come? whether a facility was owned by the MTA, Amtrak or freight railroads or private bus JB: What I’m most proud of is this companies. We were looking to move people, department’s ability and the transportation to see that they were safe, that they were system’s ability to meet challenges — secure to the extent that we could. whether it’s building the first temporary NY 10012 New York, bridge across West Street, or opening West In the future, we need to pay more attention Street itself after the tragedy of 9/11. It’s to maintaining our assets and maximizing the the willingness of the people of this depart- efficiency of the system. I think that we can 295 Lafayette Street, 2nd Floor ment and of this State to understand the be competitive in this State for the future need for quality water for the people of with the investments we have made in trans- New York City; that the environmental portation, assuming we continue to invest initiative that began here was quickly and maintain our assets. NYU • Robert F. Wagner School of Public Service Wagner F. NYU • Robert

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