Volume VI No. 1 Fall 2002

www.nyu.edu/wagner/rudincenter

T EA-21 & REAUTHORIZATION

Letter from the Editor The expiration of federal authorizations for air, transit, highway, national rail, and Amtrak funding programs during the next year and increased security as a consequence of 9/11 are We are pleased to be presenting two issues of great interest to the transportation industry. Emil Frankel, Assistant Secretary this edition of the Rudin Center’s for Transportation Policy at the U.S. Department of Transportation, has been influential in New York Transportation Journal the Department’s security initiatives and will have a substantial role in developing the new after a brief interruption. After authorization proposals for the Bush Administration. We asked Janette Sadik-Khan, Senior Vice the devastating attacks of Sep- President of Parsons Brinkerhoff and President of Company39, the e-business subsidiary of the tember 11, we felt our efforts firm, to interview Mr. Frankel on these and other important transportation matters. needed to be concentrated on the recovery of Lower . JSK: You come to this job with a solid DOT one. This will be influenced by my experience With this edition, we are back on background at the state level. Did you bring at the state level. Frankly, we have looked any strong views of changes needed within hard at the planning programs and how well track and rolling out a new format the DOT or its agencies? they are working in terms of ultimate imple- the reflects the energy of the EF: Well, I think my experience at the state mentation. Sometimes policy decisions are Journal and the transportation level is a plus. In the immediate Office of the made somewhat in a vacuum here in Washing- Secretary I am the only person who has had ton without real knowledge of how a program (Continued on page 7) substantial experience at the state and local really works. I think what I’ve tried to do is level. It is, however, a team that does bring a ask the right questions though I can’t guaran- Inside NYTJ wealth of experience from various governmen- tee what the results will be. We are also look- tal levels and the private sector. The experi- ing at the opportunities for and the limitations and the ence I’ve had is as a grantee, dealing directly and constraints on implementation of invest- Region: Where We Are and with the ultimate consumers or users of the ment programs at the state and local level. Where We Must Go transportation system and because of that, I By Elliot G. Sander think I bring a particular perspective to the JSK: When Secretary Mineta talked about development of policies. I also had an oppor- his vision for TEA-21 Reauthorization, his Since 9/11 & Into the only point on security was to “address the tunity between my public positions to teach Future security of the nation’s surface transporta- and do research and write in areas of trans- By Roberta Weisbrod tion system.” What does this really mean, portation policy which really kept me aware particularly with respect to the President’s Trans- Railroad of developments. This permitted me remain priorities and reorganization for Homeland Security? Tunnels: Looking to the at the cutting edge of new policy develop- Past and Future ments relating to the transportation field. I EF: Well, some of it relates to the Reau- By Jack M. Kanarek think all of that, particularly my background thorization bill and we are looking at the obvi- ous questions, such as hardening critical as- Congestion Charging in in policy, reinforced my state transportation sets or critical infrastructure facilities. What London management experience. does it mean to “harden”? Obviously one can By Jay Walder JSK: Do you see any changes based on your make such projects eligible for funding. How- On-Street Parking: A Study in experience at the state level that you’d like ever, where the money is going to come from, to see implemented nationally? Progress for what could be a very expensive retrofit By Allison L. C. de Cerreño EF: We have a lot of interest in simplifying program, is not yet clear but we are grappling ITS Plays a Role in Homeland programs, particularly where there are oppor- with those issues. There are a range of issues th Security tunities for consolidation, to make the whole in the aftermath of September 11 dealing By Henry Peyrebrune process of federal assistance easier for every- (Continued on page 2)

1 2 NEW YORK TRANSPORTATION JOURNAL

T EA-21 & REAUTHORIZATION CONT.

(Continued from page 1) with the vulnerabilities of the transportation that is identifying what research activities are going on in the department and system, such as our aviation system, and the what are we getting for our money. And what should the nature of the de- movement of containers to, through and from partment’s research program be and where should the responsibilities rest. At our major ports or other facilities. What do this point, we don’t have sufficient knowledge on what research is in progress we do to enhance security in these modes for elsewhere in the government or in the private or academic sectors. example? A group at DOT has been working since September 11th on issues of container JSK: I think this is something that every Administration grapples with. security, including how we learn more about EF: Relevant data is another area we are not satisfied with — I’m certainly what is in the container. Also there have been not satisfied that I know enough to be able to make thoughtful recommenda- significant steps taken by the Federal Motor tions but the collection of pertinent, measurable data ought to be defined in Carrier Safety Administration (FMCSA). In fact the Reauthorization bill. Going back to the point you mentioned, the RSPA I have on my desk a proposed rulemaking by Request for Proposals (RFP) is something that we have looked at and it is a FMCSA dealing with the implementation of the model to the extent we are trying to stimulate new ideas. As you know, I have Patriot Act. So there are many, many things, a particular interest in the whole question of how public policy can stimulate including concurrent actions in the public and private sectors, which have influenced admin- istrative activities and proposed legislation in the areas of surface and maritime legislation.

JSK: A month after September 11th, Re- search & Special Programs Administration (RSPA) issued a call for white papers on a broad range of security topics. Will this lead to expanded research efforts in the Reau- thorization? EF: Research is a critical area but we really have not yet internally reached any conclu- sions. We have made very few recommenda- tions. We’re at the point of teeing up recom- mendations on the Reauthorization bills to both the Secretary and Deputy Secretary but these do not address research. We’re really From Surface Transportation Policy Project, “Decoding Policy & Practice #1,” Posted trying to get a better handle on something 19 March 2002, http://www.transact.org/library/decoder/raba.pdf. that you addressed when you were here —

The New York Transportation Journal is published by the Rudin Center for Transporta- New York Transportation Journal tion Policy and Management in conjunction with the Rudin Center advisory board and 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 New York Transportation Journal. Editorial Board The views expressed in the New York Transportation Journal are those of the authors John Falcocchio Janette Sadik-Khan and not necessarily those of New York University, the Rudin Center, or any of its affili- José Holguín-Veras Bruce Schaller ated organizations and funders. Robert Paaswell Sam Schwartz 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 and Management NYU Wagner Graduate School of Public Service Design and Layout 4 Washington Square North Meredith Hennessy New York, NY 10003 phone: (212) 998-7545; fax: (212) 995-3890 Email: [email protected] www.nyu.edu/wagner/rudincenter VOLUME VI NO. 1 FALL 2002

innovation. Particularly in the area of invited individuals to respond and give us transportation, we are looking at techno- their ideas. So there has been a whole logical innovations — whether we are talk- process that’s has been in place I would ing about Intelligent Transportation Sys- say for about five or six months and now tems or just the automobile and mitigating we are at the stage where we’re really impacts on the environment. Is there a trying to make some decisions. We’re not better way to run our research programs? there yet fully but to a significant degree Can we more thoughtfully stimulate inno- we are ready to make some decisions vation in the private sector or at the state about what the elements of the Reauthori- and local levels? The RSPA RFP which was zation bill should be. very much the personal initiative of the Administrator is very interesting and we JSK: Secretary Mineta’s vision proposes are looking at whether it is a good model greater private sector investment in transportation. Does the track record for us to use in other areas of research in really support this? Given the state of the department. RSPA Administrator Ellen the economy, will this really happen? Engleman was overwhelmed — she re- EF: Well, I think the real focus was on ceived about five or six hundred re- private investment and further develop- sponses. One other thing, once you invite Emil Frankel is Assistant Secre- ment of innovative financing tools. We are that input, you have a responsibility to tary for Transportation Policy of looking hard at that and I think we will make thoughtful analyses of what you are the Department of Transporta- have some new proposals in innovative getting and demonstrate some follow-up tion. From 1991 to 1995 he financing, primarily with regard to the action to the transportation community. Transportation Infrastructure Finance and served as the Commissioner of Innovation Act (TIFIA) programs and state the Connecticut Department of JSK: How is the Reauthorization legisla- Transportation. As the chief tion getting coordinated now? infrastructure banks. Refinements to those programs have particular application in executive officer of this consoli- EF: Well we’ve gone through a long proc- goods and freight movements. I say that dated transportation agency of ess internal to the Department. I think we because the Alameda Corridor, which you over 4,000 employees, he was have 200 or 250 people at least directly know a lot about, is a good model for this responsible for an annual budget involved in a variety of task forces and in the case of freight and goods move- of over $1 billion and for the work going on in the operating administra- ments because you have the possibility of construction, rehabilitation, tions. They have developed proposals creating revenue streams to service debt. maintenance and management of across all modes that were presented first Let’s face it, innovative financing is pri- a multi-modal transportation to a policy group that was primarily the marily about borrowing money — and if associate administrators for policy or their you borrow money, you have to figure out system, including Connecticut’s equivalents and people from the Office of ways to pay it back. Our model is the Ala- state system of highways and the Secretary. Then the proposals were meda Corridor, which though not a TIFIA bridges, bus and commuter rail reviewed by a senior leadership group loan, was a TIFIA-like loan, and it was services, and airports. He was including the administrators and assistant necessary to establish a revenue stream to Chairman of the Standing Com- secretaries and in the last couple of weeks service that debt. What can we learn from mittee on the Environment of we are at the point of developing propos- that? When we talk about freight or goods als to submit to the Secretary that have the American Association of movement, you are dealing with private State Highway and Transporta- come from this process as well as from entities, private consumers, and you have tion Officials (AASHTO) and Vice two other very important sources. One is a greater possibility of creating new Chairman of the I-95 Corridor the operating administrations themselves streams of revenue to service the financ- and there are things which are not cross ing. I think that has promise because as Coalition, and participated as a modal that are unique to those admini- you well know the Alameda Corridor has speaker, panelist and moderator strations. They’ve developed their propos- been described as a rail tollway. There on a wide range of transporta- als, we’ve incorporated those and they’re may be opportunities for similar projects tion topics, including Intelligent reaching out to individual stakeholders. in the New York Area. I know the Port Au- Transportation Systems (ITS) We’ve been out talking, all of us, the As- thority itself has been involved in looking technologies, inter-city rail ser- sistant Secretaries and Administrators, to at some projects to improve access to and vices, transportation planning groups and listening to people, getting from the Port of New York & . their ideas and meeting with organiza- and management, and transpor- tions. We have a website where we’ve (Continued on page 11) tation and air quality.

NEW YORK TRANSPORTATION JOURNAL 3 4 NEW YORK TRANSPORTATION JOURNAL EDITORIAL

LOWER MANHATTAN AND THE REGION: WHERE WE ARE AND WHERE

WE MUST GO “The rapid response to 9/11 demonstrated that civic groups B Y ELLIOT G. SANDER have an important role to play in supporting and encouraging Immediately after 9/11, New York Governor George E. Pataki’s senior staff asked the Rudin Center, in concert with transportation in our region.” the Regional Plan Association (RPA) and the Empire State Transportation Alliance (ESTA),* to develop a conceptual plan for the renewal of Lower Manhattan. President George W. Bush’s second visit to Lower Manhattan was scheduled for three weeks after 9/11 and the Governor wanted a prelimi- connection between the two systems and providing a direct nary plan to discuss with the President at that time. connection between , the World Financial Center and the downtown “super-station;” (3) building a 21st- Governor Pataki and his senior staff, to their credit, recog- century intermodal transit/ hub at South Ferry to facili- nized that transportation was critical to Lower Manhattan’s tate high speed ferry links between Lower Manhattan and Mid- rebirth. Though not a perspective initially shared by all the town, Long Island, Downtown Brooklyn, and New Jersey; (4) major stakeholders involved in the intense post-9/11 debate, upgrading West Street in the vicinity of the World Trade Cen- this view ultimately prevailed. Further, the Governor and his ter (WTC) site, including the possible tunneling or decking of senior staff encouraged a strong and meaningful dialogue be- all or parts of West Street below Chambers Street; and, (5) tween governmental and civic leadership. This dialogue has developing a 21st-century Street Management Plan for Lower been embodied in the Civic Alliance, a coalition convened by Manhattan, emphasizing such potential features as bus rapid RPA with the support of ESTA’s members and other non- transit, advanced intelligent transportation applications, and transportation oriented groups. Now consisting of over 85 busi- sidewalk and street treatments to enhance pedestrian use. ness, civic, and non-profit organizations, the Civic Alliance has The ESTA plan also reaffirmed support for the Second Avenue played a useful educational and advocacy role in the debate Subway, and called for an evaluation of the potential for com- over Lower Manhattan, creating a sense of cohesion and col- muter rail or high-speed subway service that would link Lower laboration that has epitomized the civic discussion thus far. Manhattan with the regional commuter market beyond New Such collaboration, not normally associated with New Yorkers, York City’s borders. defied the predictions shared by many (and articulated in the Wall Street Journal and other national media) that our city This rapid response to 9/11 has demonstrated that civic groups would be incapable of thoughtful and constructive civic de- have an important role to play in supporting and encouraging bate regarding Lower Manhattan. transportation in our region. It is possible that without the work of ESTA, RPA, the Rudin Center, and the Civic Alliance Developed in close collaboration with senior officials of the the government would have arrived at a similar plan on its Governor’s Office, the Metropolitan Transportation Authority, own. However, given the constraints within which govern- MTA Transit, the Port Authority of New York & ments must work, it is unlikely they would have been able to New Jersey, and the Empire State Development Corporation, do so with the speed and the almost uniform public accep- the plan formally presented by ESTA, formed the basis of the tance and active support that the civic groups achieved. transportation principles adopted by the Lower Manhattan Development Corporation (LMDC). Among the plan’s recom- Fast Forward mendations are: (1) creating a rapid transit “super-station” at Fulton Street; (2) moving PATH eastward to connect with Where are we now? And, what are the implications of the NYCT at the proposed “super-station,” creating a seamless Lower Manhattan plan for regional transportation plans? The specific projects recommended in the ESTA plan are * ESTA is a coalition of leading business, civic, and academic stakeholders headed toward implementation. The potential depression of that has worked together successfully since 1998 to influence transporta- West Street is being debated, involving both an analysis of tion policy in the downstate region. VOLUME VI NO. 1 FALL 2002

MORE ON LOWER MANHATTAN costs and benefits as well as the relation- It is not surprising that because of this ab- ship of West Street to what is planned on sence of significant capacity expansion NYC If you are looking for information on Lower Manhattan, check out the the surface of the WTC site. The planning is brimming with major plans. All of these following websites: and engineering of the Second Avenue projects address critical needs that must be • www.lowermanhattan.info Subway is progressing, although the fund- responded to in some form. Extension of For an overview of various agency ing for construction of the project has not the 7 Flushing Line, East-Side Access, the and institutional activities and been secured. Cross Harbor Freight Tunnel, One Seat Ride news about Lower Manhattan to JFK, the LaGuardia N Train Extension, • www.renewnyc.com/index.shtml A plan to develop regional rail access has the Twinning of the Goethals Bridge, Access Official site of the Lower Man- been developed by John Zuccotti of Brook- hattan Development Corporation to the Region’s Core, the Lower Manhattan field Financial Properties. Zuccotti’s plan high-speed subway shuttle, and the Second • www.lmcc.n et/pop_up.htm would establish a high-speed subway con- Official site of the Lower Manhat- Avenue Subway projects all have some de- nection between the WTC site and Long tan Cultural Council gree of logic and justification. Further, Island Railroad’s Jamaica station; in many • w w w . c i v i c - a l l i a n c e . o r g / several of these projects (e.g., East-Side ways it bears a strong resemblance to Official site of the Civic Alliance Access — — One to Rebuild Downtown New York RPA’s MetroLink proposal which called for Seat Ride to JFK) are linked to each other, • w w w . p p s . o r g / w t c / a similar extension of the Second Avenue and cannot plausibly be advanced unless A site designed to gather ideas Subway to Jamaica Station. Zuccotti prices done in tandem. and opinions about the redevelop- ment of Lower Manhattan his proposal at $1.9B, though others be- lieve the price tag is closer to $3B. He Without these projects, or some variation argues persuasively that unless transporta- of them, it is impossible to imagine New tion is dramatically improved to Lower York retaining its position as the global Manhattan, the leases of major corpora- capital of finance, communications, and tions that expire in 2008 will not be re- commerce in the 21st century. Yet, finan- newed. For the state and city, the finan- cial decisions involving each of these initia- cial cost of non-renewal, Zuccotti con- tives are being made within an extremely tends, would be a multiple of the cost of difficult context. New York’s clout is dimin- the proposed West Street tunnel and the ished in Washington, the financial coffers in high-speed subway connection. Albany and NYC are shrinking, and priorities are not clear. The Project Backlog After almost 70 years of no transit system Where’s the roadmap, and what route will be taken? capacity expansion (with the exception of the 63rd Street tunnel and Air Train) and First and foremost, there must be recogni- no roadway capacity expansion in 40 tion that the question is not which of these years, we are at or close to peak capacity projects or their variations must be imple- in commuter rail and key subway markets mented, but when they should be phased entering the central business district in. Priorities must be set for the short-, (defined as Manhattan below 59th Street). medium-, and long-term, with a plan for Obviously, our bridges, tunnels, and high- phasing in shorter-term projects in a way ways into Manhattan are already overly that does not preclude potential longer- congested. That means we will have at a term initiatives. minimum a major constraint, and at The financial picture is more grim. Absent worst, potentially a virtual ceiling on fu- tolling the East River Bridges and commit- ture job and economic growth in the cen- ting a significant portion of these funds to tral business district of the region, with major transportation capital expansion, a related regional impacts for the foresee- commuter tax, or some other dedicated able future. funding, some or conceivably none of the projects will be realized in the short- or long-term. Elliot G. Sander is Director of the Rudin Center for Transportation Turning to Washington, our delegation did a Policy & Management and Senior terrific job in securing the $4.5 billion for Vice President and Director of Cor- porate Strategic Development at (Continued on page 7) DMJM + Harris.

5 NEW YORK TRANSPORTATION JOURNAL 6 NEW YORK TRANSPORTATION JOURNAL

SURFACE, AIR, AND WATERWAYS: FOCUSING IN

FERRIES SINCE 9/11 AND INTO THE FUTURE

B Y ROBERTA WEISBROD, PH.D.

The response of the ferry operators to the horrific events of 9/11 showed the speed at which ferry services can be imple- mented, their flexibility, and the relatively inexpensive redun- dancy they provide to the region’s fixed transportation net- work. Days after 9/11, both the public and private ferry sector introduced new routes and landings. As conditions and the market changed, routes, landings, vessels, and types of ser- new ferry services to Lower Manhattan from Pavonia/Newport, vice were altered, a flexibility impossible for the static sur- Exchange Place, Port Libertee, and Liberty Harbor and to Mid- face transport modes of rail, highways, bridges, and tunnels. town Manhattan from Pavonia and Exchange Place. There are FEMA funded some of the ferry service alternatives to the increased frequencies on routes between the great Hoboken downtown PATH service that was disrupted on 9/11 and an Terminal and Lower Manhattan, with three separate NY Wa- additional $100 million in Federal Emergency Ferry funds are terway ferry services each operating at six minute intervals expected to be furnished by USDOT for new piers and termi- between the Terminal and Pier 11 at Wall Street, Pier A at nals and for rehabilitating existing ones. The federal funding, Battery Park, and the World Financial Center. Started soon in effect, has provided insurance that in the event of future after 9/11 as a private charter, an open to the public commu- incidents there is capacity in the system for alternative com- tation ferry service operating along the East Side of Manhattan mutation routes, and, if needed, evacuation during emergen- was initiated in late 2001 by NY Waterway. cies. The following paragraphs highlight some of the changes Other companies are following suit. NY Fast Ferry initiated that have occurred since 9/11 and provide some insight into new routes from Keyport, New Jersey to Pier 11 and East 34th the future of ferries in our region. Street, and Seastreak began new service from South Amboy to There are new routes and greater frequency of service. the same Manhattan piers. Liberty Water Taxi now takes pas- Ferry ridership in the New York City Metropolitan Area has sengers between and Pier A and the World grown dramatically since 9/11. While New York City Depart- Financial Center, with the Pier A service starting after 9/11. ment of Transportation (NYCDOT) has A free park and ride ferry service from Pier 4 at 58th Street in maintained its approximately 60,000 daily riders, private sec- Brooklyn to Lower Manhattan began within a week after 9/11 tor daily ridership has nearly doubled since 9/11, from 32,000 with two small 1,280-passenger Staten Island Ferry vessels. to approximately 60,000 customers. NY Waterway, accounting The Brooklyn service was contracted out to NY Waterway in for about 90 percent of the private ferry passengers in the June 2002 and is being subsidized by the Federal Emergency area, is now the largest private ferry service in the nation. Management Administration (FEMA) until the end of the year. To service these new customers, NY Waterway has started There is a new player — the Water Taxi. Though the plan- ning for water taxi service between Brooklyn and Manhattan “The response by the ferry pre-dates 9/11 by several years, the Water Taxi is scheduled to begin service in Fall 2002, with 54-passenger vessels operators to 9/11 helped remind us painted in Checker Cab colors. Commutation hour routes are of the importance of the waterways expected to be operated between Brooklyn’s Fulton Ferry landing (DUMBO) and Wall Street, , and Battery throughout the metropolitan Park City’s North Cove. During Midday, the taxi will add stops at Chelsea Piers and the Intrepid. region.” There are new ways of doing business. The New Normalcy has VOLUME VI NO. 1 FALL 2002

included an increased security conscious- Drayage: An Analysis of the San Francisco Bay Area,” Presented at the Transportation Research Board Annual (Continued from page 1) ness. Vehicles are no longer allowed on Meeting, Washington, DC (January 2001). For updates, the Staten Island Ferry. There is police/ see San Francisco Bay Area Water Transit Authority, www.watertransit.org and San Francisco Bay Area security presence at all public and private Council, http://www.bayareacouncil.org/watertransit. community. As always, we will ferry landings. All the ferry operators are 5. Paul Lipson, The Point CDC (Hunts Point, the Bronx), continue our mission of present- personal communication. actively engaged in security operational ing articles that stimulate crea- planning improvements as part of the U.S. tive thinking and discussion on Coast Guard’s Harbor Operations Commit- (Continued from page 5) transportation issues important tee. NYCDOT recently received a $2.7 mil- to the New York Region’s eco- lion grant from the U.S. Department of the Lower Manhattan projects, as part of nomic vitality and quality of life. Transportation (USDOT)1 to upgrade secu- the $20 billion dollar emergency federal rity on the Staten Island Ferry and at its commitment. However, it appears that This issue coincides with the first terminals, as well as for some private Washington’s largesse with one hand has anniversary of 9/11. Transporta- ferry service security improvements. had a negative effect on the other hand, tion services in Lower Manhattan leading to an allocation in the current Sen- were severely affected that day, Possibilities for the future. The response ate Transportation Appropriations Bill of yet were critical to many people by the ferry operators to 9/11 helped re- only $15M for East-Side Access and none for trying to escape the area as well mind us of the importance of the water- the Second Avenue Subway. With these as to emergency workers at- ways throughout the metropolitan region. allocations, the MTA, responsible for ap- tempting to reach the site. As Additional ferry services are being planned proximately one-third of the nation’s tran- plans for the WTC site are being and explored from sites in New Jersey, sit ridership, is ranked behind more than 22 developed, we acknowledge this Staten Island, and Brooklyn. Included other transit properties in funds received tragic event with several articles among these is a Port Authority proposal for transit new starts. With reauthorization on post-9/11 initiatives including to contract a private vendor to initiate of TEA-21 funding around the corner, this is those aimed at improving access service between Midland Beach on Staten a bad omen. Island and Manhattan.2 The planning proc- to and sustaining a viable com- ess for the Olympics opens up the possibil- After the November elections, working munity in Lower Manhattan. within the framework of TEA-21 reauthori- ity for new ferry landings that could revi- Finally, federal authorizations for 3 zation as well as renewal of the 5-year MTA talize isolated waterfront neighborhoods. air, transit, highway, national Capital Plan, the Governor and Mayor, our Similarly, the soon to be bid concession rail, and Amtrak programs will Congressional delegation and our State leg- for the Statue of Liberty/ ferry expire during the next year. This service would connect the branches of the islators will need to figure out how the rub- is the first time that reauthoriza- National Park System in New York/New ber will meet the road, or in this case, tion of these programs will hap- Jersey harbor, from downtown New York, where the steel wheels will meet the rail. pen concurrently, offering a to Ellis and Liberty Islands to Gateway Working together, our governmental and unique opportunity to consider Jamaica Bay and Gateway Staten Island. civic community leaders have provided a these transportation modes as a strong foundation upon which to build, but There is also enormous potential for the single integrated system. Begin- there is still much to be done. I can’t think use of freight ferries. In areas such as the ning with this edition of the Jour- of a better test for our political and institu- San Francisco Bay Area,4 there are plans to nal, and through the passage of tional leadership than this challenge. What use freight ferries to carry air express be- the new programs, we will offer kind of a statement will our region tween airports and the downtown. There a mix of interviews, research, (associated not just with national but is some innovative thinking about using global pre-eminence) make if it fails to and discussion on the possibilities ferries for the transport of perishables, reach a favorable and thoughtful solution to presented by the various reau- fish and fruit.5 the problem of providing adequate and high thorization proposals. The possibilities are endless for those will- quality transportation for the first part of st ing to look outside the box. the 21 century?

1. USDOT Press Release, “Secretary Mineta An- If they are to be successful, efforts to find nounces Port Security Grants,” 17 June 2002, and implement this solution will need to be http://www.dot.gov/affairs/061702sp.htm.

2. “Midland Beach Eyed for S.I. Fast Ferry,” Mobiliz- characterized by leadership, consensus- ing the Region, 24 June 2002, www.tstc.org. building, creativity, transparency, and po- 3. www.nyc2012.com. litical will. It won’t be easy, but the stakes 4. Anthony Bruzzone, et al., “Ferries for Airport are clear, and it must be done.

Roberta Weisbrod is Principal for Partnership for Sustainable Ports.

7 NEW YORK TRANSPORTATION JOURNAL 8 NEW YORK TRANSPORTATION JOURNAL IN THE REGION

TRANS-HUDSON RIVER RAILROAD TUNNELS: LOOKING TO THE PAST AND FUTURE

B Y JACK M. KANAREK

The history of regional railroad access to midtown Man- Core Project (ARC), a planning partnership of the Port hattan is coming full circle as we begin the 21st Cen- Authority of New York and New Jersey, NJ TRANSIT, and tury. One hundred years ago, the Pennsylvania Rail- the Metropolitan Transportation Authority. Based on road, the nation’s “premier railroad,” was in the early long term assessments of trans-Hudson travel needs, stages of planning and engineering for its trans-Hudson the ARC team began its work in the mid-1990s when NJ River railroad tunnels to avoid the difficulties of ferry TRANSIT was advancing projects to maximize the capac- crossings, and to create direct train service between ity of the Pennsylvania’s trans-Hudson line (now called the nation’s “star city” with the continent to the west. the Northeast Corridor Line) and to connect its sepa- Today as the capacity of these tunnels is nearing full rate lines into an integrated system. In 1996 NJ TRAN- use in the commuter peak periods, the need is once SIT initiated its Midtown Direct service to Penn Station, again apparent for a project to construct another set of from the former Delaware, Lackawanna and Western railroad tunnel tracks under the Hudson River. Railroad’s Morris and Essex Lines. It was also beginning construction of the Secaucus Transfer Station, to link In 1902 the Pennsylvania Railroad was preparing to be- the former Erie Railroad’s lines serving New Jersey’s gin the construction (begun in 1903) of the Pennsyl- Bergen and Passaic counties and New York’s Rockland vania Station railroad complex to provide the “standard and Orange counties with the Northeast Corridor, and railroad of the world” with a direct railroad connection the entire rail network in northern New Jersey. With for long distance trains between New York City and the opening of the Secaucus Transfer Station, expected both the west and New England, and to serve commut- in 2003, the entire northern New Jersey railroad net- ers using the (LIRR). In the inves- work will be connected to and reliant on the Pennsyl- tigations leading up to the decision to build the tun- vania Railroad’s two single-track tunnels for access to nels, the Pennsylvania Railroad sought to join forces Penn Station and to serve midtown Manhattan directly. with the other railroads serving New York via ferry ser- vice from New Jersey. However, there were no takers Early in its work the ARC team observed the significant among the other railroads and, at an auspicious point in growth of Manhattan bound ridership on NJ TRANSIT’s time, the leadership of Pennsylvania Railroad was able Northeast Corridor and North Jersey Coast Lines and to proceed with its own tunnels and station, which the success of the new Midtown Direct service. This were completed and put into service in late 1910. growing regional travel between New Jersey and New York not only involved increasing peak period journey Though diminished by the demolition of the original to work trips, but also travel for social, recreation and Pennsylvania Station, the railroad complex constructed entertainment purposes. Demographic forecasts also during the first decade of the twentieth century has indicated that this trend would continue into the long- served the region well; but it is now stretched to ca- term future. The human resources in New Jersey and pacity in the commuter peak periods. The commuter the unique job and cultural activities in Manhattan railroad services, from both the east and west, have were increasing the inter-dependence and synergy be- expanded significantly since the original railroad infra- tween the two states. structure was planned. The rail services, now operated by NJ TRANSIT from west of the Hudson River, consists Considering these trends, and after evaluating numer- of commuter trains from not just the former Pennsyl- ous modes and route options, the ARC team recom- vania’s rail lines, but also from railroad lines previously mended that the expansion of trans-Hudson commuter owned by the private railroads who had not been will- rail capacity would be the optimal means to accommo- ing to combine forces with the Pennsylvania to build a date the growth of travel between New Jersey and mid- joint bridge and terminal. town Manhattan. With a forecast demand exceeding peak hour capacity by about 20% by 2020, and strong The current investigations of trans-Hudson transit interest in operating additional rail lines directly into needs have been pursued by the Access to the Region’s midtown Manhattan (which will likely generate addi- VOLUME VI NO. 1 FALL 2002

NJ TRANSIT FACTS & FIGURES*

Service Area: 5,325 m2

Avg. Weekday Ridership: 380,600

• Bus 258,600

• Rail 110,500

• Light Rail 11,500

Daily Usage at Major Rail Terminals and Stations

Newark Penn Station 27,330 New York Penn Station 51,093 25,388

Operations Rail

Overlay of three possible design alternatives that address the growing demand for increased capacity and intercity • Rail Lines 12 service between the railroads. • Route Miles Operated 542

• Rail Cars in Service 714 tional passengers), the ARC team has needed before environmental docu- • Daily Revenue Trains 614 more specifically recommended the mentation and project engineering construction of two tunnel tracks to- can be advanced. • Rail Stations 163 gether with a comprehensive set of other investments in New York and The recognition one hundred years Light Rail New Jersey. ago by the Pennsylvania Railroad • Light Rail Lines 2 leadership that direct railroad access The configuration of the improve- to midtown Manhattan would be an • Total Miles of Track 12.6 ments at both ends of the proposed essential investment for the future • Light Rail Stations 26 trans-Hudson railroad tracks has been was prophetic. It enabled the Rail- • Vehicles Operated 45 the subject of the most recent ARC road and the region to continue to project work. Two of the three op- prosper and grow by initially serving intercity travel and, then becoming Bus “The cycle of decision-making an essential part of the commuter transit network in the region. Simi- • Routes 238 has come full circle after a larly, the ARC project work indicates • Buses Operated 2,025 that once again a major investment century.” for regional and national growth is needed. The cycle of decision-making tions would accommodate the growing has come full circle after a century. FY 2002 Budget in Millions demand by either expanding passen- The need once again exists for a (July 1, 2001—June 30, 2002) ger capacity in or under Penn Station. trans-Hudson railroad project. With The third would serve both Penn Sta- the work of the ARC team in place, Operating Budget $1,138.0 tion and Grand Central Terminal, cre- the opportunity is present to com- • State 260.0 ating a regional railroad network that plete the planning and design, find • Fare Box 493.1 the means and put in motion a con- would link all three of the region’s • Other Revenue 76.3 commuter railroads and Amtrak inter- struction project to serve future gen- • Other Reimbursements 308.8 city service. Differing opinions and erations through this century, and goals among the project constituen- perhaps into the next. Capital Budget $1,131.1 cies have not made it possible for a • State 572.5 decision to be made on the full con- Jack M. Kanarek is Senior Direc- • Federal 438.1 figuration of the proposed project. tor, Project Development at New • Other 120.6 Further analysis of these options, and Jersey Transit Corporation. possibly other hybrid options, will be *As of June 30, 2001

NEW YORK TRANSPORTATION JOURNAL 9 10 NEW YORK TRANSPORTATION JOURNAL

BEYOND THE REGION

CONGESTION CHARGING IN LONDON

B Y JAY WALDER

London, at the heart of the UK economy, is a European and global center for finance, culture, tourism and entertainment. However, London’s future as a thriving world-leading city de- pends on its transport system — a system seriously under threat from congestion.

Currently, some roads entering the capital carry as much traf- fic as UK motorways. The average speed of traffic on these roads as they approach the center of London is no faster than it was over 100 years ago in the reign of Queen Victoria; roughly equivalent to the speed of a horse and cart — less than 10mph. Drivers, on average, spend 50% of their daily journey bumper to bumper. Although it never appears on a company’s balance sheet, the delays on London’s roads cost businesses significant sums of money. Research shows that covers multiple crossings of the boundary. Payment will be roadway congestion is the number one transport issue that accepted by internet, phone, post and at retail outlets, and Londoners want tackled. can be made on a daily, weekly, monthly, or annual basis. There are, however, no discounts for buying in bulk. Traffic congestion is not confined to London; it is a worldwide problem. As the Mayor of Tel Aviv once said, “everyone drives Unlike most other tolling schemes, there are no fixed barriers but no one moves.” The simple fact is that in densely packed or special lanes. The boundary itself is a virtual one. However, urban areas there is only so much road space and little oppor- the run up to launch in February 2003 will see a saturation tunity to create more. Until recently, this global issue has only public information campaign across all media. This will include been comprehensively tackled in one city — that is Singapore. permanent signs on all roads leading to the charge zone, be- That is about to change. ginning on motorways and main roads as they near London.

The Mayor of London is now preparing to embark on a conges- When a vehicle crosses into the zone, fixed and mobile cam- tion charging program that will get London moving again. Pro- eras at the boundary and within the zone will identify the reg- fessor Phil Goodwin, from University College London estimates istration number for each vehicle and start a computerized that the scheme could save London’s businesses up to check to determine whether payment has been made. The £4million a week in terms of reduced congestion. owner of any vehicle entering the charging zone for which there is no payment record will be issued a penalty charge How will it work? Drivers wishing to enter the central area of notice for £80, reduced to £40 for prompt payment. London will need to pay £5 per day. The one-off daily charge Business representatives have broadly welcomed the Mayor’s plans to implement congestion charging for London because they believe it will save their members time and therefore money in the long term. David O’Gorman, the transport man- “Traffic congestion is not confined ager for Oxford Street retailer John Lewis is typical, saying, “Reduce the congestion and we’ll recoup the £5 fee because to London; it is a worldwide our drivers will be able to make more deliveries.”

problem.” Environmental campaigners have also praised the scheme al- though there is opposition from those on or near the boundary where there are fears about increases in traffic, pollution and negative impacts on property prices. VOLUME VI NO. 1 FALL 2002

(Continued from page 3) Rudin Center Many businesses have also welcomed pro- So to the extent you are focused on freight Highlights posals to streamline the payment systems and goods movement, you have the possi- for freight and fleet accounts to cut down bility of creating a user fee or user charge on administration involved in paying the to service debt and maybe to use a substan- 3rd Annual Tri-State charge. While non-commercial drivers will tial amount of private investment capital in Transit Symposium have to pay the charge on a daily, weekly, lieu of public federal grants. or monthly basis, fleets of more than 25 “Mega-Projects within the vehicles can settle up once a month for all JSK: The Secretary’s vision talks about NY Metro Region & their vehicles. improving transportation systems through improved procedures, improved accessi- Abroad” bility, improved decision making, im- Will it work? The £5 daily charge to drive proved integration, improved mobility. It October 25, 2002 in the heart of London is expected to does not talk about rail, transit, high- 8:00 am—2:30 pm prompt 20,000 people to leave their cars ways. Does this mean we will see another at home in the morning peak period. With move to reduce the scope of the NYU Bobst Library “stovepipe” administrative organizations 70 Washington Square South 15% fewer people driving in to the capital, that we have today? the amount of time drivers spend in New York, NY EF: I think there is a clear impulse to do queues is predicted to go down by 30%. that when we can. I can’t say that we nec- For additional information visit us on the web at At the same time, the introduction of the essarily will have recommendations to break down the stovepipes in a branching www.nyu.edu/wagner/ congestion charge will increase the road rudincenter or call sense between the modes but within the space available for London’s buses. 200 (212) 998-7544 extra buses will be on the streets before modes we are looking very, very hard at February 2003 when congestion charging is opportunities to consolidate and simplify introduced. These buses, together with programs. I think we will have some propos- Featured Research improvements to the existing network, als there, and some could be significant. will provide 10,000 spaces each morning There is a possibility they could be quite The Dynamics of to more than cater for the 7,000 extra dramatic in terms of proposals to allow On-Street Parking in Large people expected to travel into the center greater flexibility and giving state and local Central Cities of London by bus during the peak hour. metropolitan officials greater discretion as the case may be to make decisions about Download the full report As well as this massive increase in bus how money is utilized in safety, transit and from our website at capacity before the scheme goes live, the perhaps the highways area as well. www.nyu.edu/wagner/ £130M net revenue a year raised by the rudincenter charge will be re-invested to boost Lon- JSK: Will the recent Amtrak crisis initiate don’s transport infrastructure. Projects an effort to set up a national rail system, like the Interstate Highway System as a range from further improvements to the chartered service with operating compa- Featured Project bus, tube and train network to road and nies leasing rights to use it? bridge maintenance programs. EF: That concept is contained in a sense, 9/11 Response

We are at a major crossroads in terms of at least the rhetoric is contained in legisla- After September 11, the Rudin the capital’s transport infrastructure, and tion that was introduced by Senator Holl- Center and the Regional Plan the eyes of the world are on London. Con- ings, the Chairman of the Commerce Com- Association, in concert with the gestion charging will deliver noticeable mittee. In fact, he labels his bill as the Empire State Transportation benefits to London’s business, real im- “National Defense Rail Act.” The Secretary Alliance and in consultation provements to the quality of life of Lon- spoke about a month ago at the Chamber of with key transportation agen- don’s residents, and transport enhance- Commerce here in Washington and articu- cies, created a draft transporta- ments across the whole of the capital. And lated a vision of strategic goals for inter- tion plan for lower Manhattan at where London leads, other cities follow. state passenger rail. It was very interesting. the request of Governor Pataki. You know some of the press initially labeled This plan formed the basis for it as anti-Amtrak. It was in the context of the transportation plan recently this funding crisis where we were trying to advanced by the Civic Alliance Jay Walder is Managing Director of deal with short term issues and help Amtrak and the Lower Manhattan Devel- Finance and Planning at Transport deal with how do they get to the end of the opment Corporation. for London. (Continued on page 14)

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

ON-STREET PARKING: A STUDY IN PROGRESS

B Y ALLISON L. C. DE CERREÑO, PH.D. “When asked to provide the number of on-street parking spaces available for

Parking is a critical component of transportation policy and the entire city and for the downtown management for any locale, but especially for large central area, only two cities out of nine could cities. Policies and management practices affecting parking lead to outcomes that, in turn, influence land use, air quality, provide figures for both, and two traffic congestion, travel behavior, safety, and economic de- cities could not provide information velopment, not to mention revenue lines. Yet, effectively managing parking is an ongoing battle for large central cities for either.” as they face competing, and sometimes contradictory, objec- tives along with an ever-increasing demand for space.

As important as parking is, there are relatively few analyses of indicative, many are unable to effectively track their assets. parking, and even fewer of “on-street” or “curb” parking. When asked, for example to provide the number of on-street Recognizing the need to develop a body of literature and an parking spaces available for the entire city and for the ongoing peer-to-peer exchange about on-street parking, the downtown area, only 2 cities out of 9 (Chicago and Dallas) Federal Highway Administration under its Metropolitan Capac- could provide figures for both, and 2 cities (Los Angles and ity Building Program, provided the funding for this study. This Phoenix) could not provide information for either. In con- article highlights some initial findings from the peer-to-peer trast, for off-street parking spaces, every city but one exchange session and questionnaire in which 9 cities partici- (Phoenix) provided figures. Similarly, when asked to provide pated: Boston, Chicago, Dallas, Los Angeles, New York City, the number of parking-related signs throughout their cities, Phoenix, Portland, San Francisco, and Washington, DC. only 6 of the 9 cities could provide an estimate, and of these only 2 (Boston and New York City) could provide an esti- To Effectively Manage, One Must Know What It Is That She/ mated number of how many signs are on the streets in the He is Managing downtown areas. It has been said that the key to on-street parking is effective In a related set of questions, cities were asked what kinds of management. However, to manage effectively, one must know information related to on-street parking are readily avail- not only who needs the space and when, but what spaces are able and in what forms. While 6 of the 9 cities reported hav- available and where. On the first set of tasks, most cities per- ing information related to the location and description of form well; however, if the results from the questionnaire are regulations on their streets, only 4 could provide information on the location and description of their asset inventory, and one of these could only provide this information for meters. The degree of confidence in the information ranged broadly, but more significant perhaps, is that the majority of the cities rely primarily on paper files; only 2 (Chicago and New York City) make use of some form of database management system, and 1 (Boston) utilizes a virtual video system to catalogue information. For large cities, where multiple agencies and divisions are responsible for various aspects of on-street parking, having basic information on assets and regulations in an accessible format that can be updated and shared easily is vital. Deter- mining how best to do this is a topic in need of further dis- cussion and assessment. VOLUME VI NO. 1 FALL 2002

* Integrating and Coordinating Among Agen- ing. For the most part, this takes the form COUNCIL ON TRANSPORTATION cies and Divisions is Critical of making parking cheaper in spaces fur- The reason data could not be provided was ther away from the high demand areas. Representing major private and non- profit sector organizations, the Coun- not always because it was unavailable; in However, Los Angeles also has an area cil on Transportation is a bipartisan some cases, it was just difficult to find or (Venice Beach) where meter rates change group created by the Rudin Center resided in an agency different than that depending upon the time of day. committed to improving transportation in the downstate New York region, which was filling out the questionnaire. In New York City has a congestion pricing especially in New York City. fact, in all of the cities multiple agencies program for commercial parking, which Steve Greenfield, Chair and/or divisions with Departments of Trans- has the makings of a best practice for the Constantine Sidamon-Eristoff, Vice Chair portation or Public Works are involved with industry. Covering the area from 42nd to Elliot Sander, Executive Director parking. Just looking at 4 key areas related 57th Street (N-S), and from 3rd to 8th Ave. to on-street parking — collections, enforce- (E-W), the program provides a graduated Richard Anderson Regina Armstrong ment, maintenance, and purchasing — no time limit up to 3 hours for commercial city had fewer than 3 agencies and/or divi- Richard Aspinwall vehicles. The first hour costs $1, the sec- Deborah Beck sions sharing some portion of the responsi- ond hour costs $3, and the third hour costs Allison L. C. de Cerreño bility. Yet, integrating or at least coordinat- $6 for a total of $10. The program is al- Louis J. Colletti ing policy, management, enforcement, and ready more successful than anticipated. Thomas Diana even adjudication is important since each Occupancy rates, reported at 125% prior to John Dionisio relates to the others. Beverly Dolinsky the program, have been reduced to 85%, William Fahey To address this, several cities have meetings leaving more places to park. Surveys prior John Falcocchio with various agency members to deal with to the program showed average parking Michael Francese on-street parking, at least in terms of op- time for loading/unloading at 4-6 hours; Alan Friedberg William Galligan erations. While some are conducted on an average parking time is now reported at Louis Gambaccini about 90 minutes. Further, both the city ad hoc basis (for example, Portland holds Sonny Hall sessions with the Association for Portland and companies with commercial vehicles José Holguín-Veras Progress Transportation Committee and with benefit. For the City, enforcement is eas- Mike Horodniceanu various community associations), others are ier and streamlined, summons rates have Arthur Imperatore, Jr. held on a formal and regular basis. New dropped, and revenues have already more Brian Ketcham Alan Kiepper York City has a monthly session with multi- than equaled the initial investment. For Carolyn Konheim companies, with tickets down, they have ple Department of Transportation units and Floyd Lapp the New York Police Department. fewer business losses, and they can deduct Eva Lerner-Lam the price of parking as a business expense. Thomas Maguire Of the nine cities involved in the study, Chi- Companies can purchase debit cards with Francis McArdle cago’s Mayor’s Traffic Management Task chips (smart cards) to give to their drivers, James Melius Force, provides the highest level of consis- making it easier to track and making it Mitchell Moss Robert Paaswell tent and formalized interaction among vari- possible for the drivers to carry less cash. ous agencies and divisions dealing with on- Anthony Perl Henry Peyrebrune street parking operations. Meetings are held The final report, which draws on the find- Steven Polan ings from the questionnaire and peer-to- weekly to review concerns related to daily Lucius Riccio traffic operations. Ongoing attendees in- peer sessions, as well as on the literature William Rudin clude the Department of Transportation, that is available for both off-street and Gene Russianoff traffic police, Streets and Sand (they put on-street parking, provides further discus- Janette Sadik-Khan up/take down barricades, cones, and mes- sion on the above topics. It identifies les- Ross Sandler sons learned, best practices, and provides Bruce Schaller sage boards), Sewer and Water, the muse- Samuel Schwartz ums, campuses, and trolley operators. Any a set of recommendations for action and Dom Servedio agency, organization, company, or other further study. Roy Sparrow group related to major project that may Marilyn Taylor *Though the terms are often interchanged, value and Ben Thompson affect traffic patterns is also invited to the congestion pricing are different forms of variable Roberta Weisbrod sessions when appropriate. pricing. Value pricing means charging for something of additional worth; congestion pricing means charging Michael Weiss to reduce the number of vehicles. For more, see C. Kenneth Orksi, “Charging for the Use of Roads, Trans- Donald Weisstuch Best Practices Exist: Variable Pricing for portation Quarterly 56, 3 (Summer 2002): 33-35. Robert Yaro Commercial Parking in New York City Michael Zetlin Allison L. C. de Cerreño is Co- Six of the nine central cities responding to Rae Zimmerman Director of the Rudin Center for the questionnaire make use of some form of Jeff Zupan Transportation Policy and Man- variable (either congestion or value) pric- agement.

NEW YORK TRANSPORTATION JOURNAL 13 14 NEW YORK TRANSPORTATION JOURNAL

(Continued from page 11)

the freight railroads about their ideas as to what this system fiscal year. ought to look like. We are going to try to articulate over the next several months a more concise view of what the form Basically, the Secretary’s vision had three or four important of inter-city passenger rail should look like in the country. elements. First, he stated that inter-city passenger rail is an But, whether we’re talking about the loan agreement or important part of the national transportation system. Sec- appropriations, we have said that in terms of going beyond ond, he indicated that there had to be fundamental reforms the Administration’s request for $521M for Amtrak, any ap- in the way we provide inter-city passenger rail. Third, he propriation should be combined with it as a “down payment” made a commitment that once States have identified where on fundamental reform. Not all the way, but at least some inter-city passenger rail made sense and we moved away significant conditions or reforms in order to justify continu- from politically driven decisions to a decision driven by the ing the funding. The idea of just “kicking the can” to give marketplace, by the desire by states and localities to have Amtrak another year of money without bringing about any it, that the federal role would be to share in capital invest- fundamental change is not acceptable. ment but not to be in the business of operating subsidies. Finally, he raised lot of questions. It was not an articulation JSK: It’s interesting because it brings to mind that you of what a bill would be or should be but rather it was to say have aviation reauthorization this year, you’ve got the that here are the goals, here’s our vision, here are the val- transit, rail, highway program reauthorization, and you’ve ues, come let us reason together about what this system got Amtrak up. It must be the first time in history that you’ll have all the transportation systems up for reau- ought to look like both on a national basis and in the North- thorization at the same time. As the chief policy leader east Corridor. for the USDOT, it seems that there is an incredible oppor- tunity to re-examine how it is that the surface transporta- The NEC which he recognized in his remarks, and we have tion network is knit or is not knit together, and approach- consistently said since, is unique. It is unique because of the ing it as a truly integrated transportation system. Looking Amtrak ownership of most of the right-of-way, because most at buses to provide some of the short haul pieces and looking at the intersection between the bus, rail, aviation of the operations should at minimum break even. It is a network in a fundamentally new way. place that has an identity and a willingness to utilize inter- city passenger rail (more than 50% of the combined air and EF: You’re right. As far as we know, it is the first time that rail traffic between Washington and New York goes by rail). TEA-21 and Air-21 reauthorization will occur in the same Nonetheless, there is a different kind of partnership with year. It is a terrific challenge; it is a terrific opportunity. stakeholders, which also incidentally and importantly in- The chief policy maker in the DOT in dealing with all of this clude commuter rail. So answers may be somewhat different is the Secretary, and nobody understands this better than or the phasing might be somewhat different in the Northeast the Secretary and that’s the truth. My role as one of many Corridor from the rest of the country, whatever emerges people, along with the operating administrators, and the from all of this. Secretary’s staff, is to help him shape a set of programmatic recommendations that recognize the extent to which we can We have subsequently initiated the process of talking to the define the connectiveness of the system and really deal suc- commuter rail companies, to the States, to localities, and to cessfully with a multi-modal system. I think from your ex- perience you would share this. One of your former col- leagues and mine said that she felt that the “I” part of ISTEA, the Intermodal, still remained a real challenge. I think that is true. I think creating better connections across the modes remains a real challenge; a challenge in terms of legislation we introduce, but even more the implementation of the legislation. We put a lot of reliance on a planning process that is still young and relatively new. Hopefully, we are asking the right questions whether it’s Air-21 or TEA-21 reauthorization. Are we doing enough to enhance access to airports by buses and transit? Are we doing enough to assure connection between commuter rail systems and the inter- city passenger rail? Whether we will have programmatic answers I can’t say but hopefully will continue to ask the Photo Provided by the Federal Aviation Administration right questions.

JSK: It’s a huge challenge. VOLUME VI NO. 1 FALL 2002

SOURCES ON REAUTHORIZATION

JSK: I see a lot of literature on Sustain- There are a number of websites avail- able Development, Design and Construc- “It is the first time that TEA- able for more information on reau- tion. Do you see any DOT policy initiative thorization. Among those that offer in this area? 21 and Air-21 reauthorization broad background, discussion, and updates of relevant activities are: EF: It’s a very interesting and important will occur in the same year. It question and it’s one I’ve been grappling • The US Department of Transporta- is a terrific challenge; it is a tion’s official site on Reauthoriza- with since I got here. I think that the DOT terrific opportunity.” tion provides a timeline and basic should play an absolutely fundamental and background information. significant role in the area of sustainable www.fhwa.dot.gov/ mobility — you know different phrases are reauthorization/index.htm used for this. There are a bundle of issues, • ITS America offers frequently upated the interface between transportation, en- news items related to reauthoriza- ergy and the environment, technological laborative efforts, to create a kind of in- tion. www.itsa.org/ innovation and automobiles and heavy vehi- stitutional cooperation, communication • The Surface Transportation Policy cles and other issues of sustainability. The between our agencies and I think there is Project provides news, updates on DOT needs to be at the table, needs to play an openness to doing that. But again, for legislation, and Congressional testi- an important role but you know outside of what purpose? If we talk to the Secretary mony. www.transact.org/ the National Highway Traffic Safety Admini- what are we asking or expecting that the Several organizations have their policy stration’s regulatory power over the auto- DOT might do? We haven’t really resolved positions available online. mobile manufacturers, we don’t really have that yet. • American Association of Port Au- a direct role. Most of the research and new thorities (AAPA). www.aapa- technologies occur at the Department of JSK: What would you say your priorities ports.org/govrelations/ Energy, so what exactly is our role in this? are for 2003? freight_stakeholders.htm You know, transportation is such an impor- EF: Well the highest priority for me is • American Association of State High- tant player in issues of sustainable living. the reauthorization of TEA-21. I think it is way and Transportation Officials We are so dependent on technological fixes, already taking a huge amount of my time (AASHTO). transportation.org/ tailpipe technologies and innovations to and I think it will consume even more both community/reauthorization/ policy_positions.html deal with current air quality standards let in terms of the development of the bill, alone issues of greenhouse gases and what- the outreach efforts and eventually help- • American Bus Association (ABA). ever impacts the climate. So we know the ing to prepare testimony before Congress. www.buses.org/Reauthorization/ transportation sector is one of the most Obviously, given my own personal interest • American Public Transportation As- important elements in shaping our environ- and experience, I am engaged and expect sociation (APTA). www.apta.com/ ment and dealing with quality of life issues. to be engaged in the development of the info/online/tea21rec.htm The Department is at the table more in a Department’s vision or fleshing out the • American Public Works Association kind of episodic and reactive way than it is Secretary’s vision of inter-city passenger (APWA). www.apwa.net/ as a policy leader. I think we need to try to rail. I think freight and goods movement Documents/GovtAffairs/TEA- change that. I am not sure yet how. We are has been a bit of a stepchild in policy 21_policy.pdf grappling with exactly what form that would making, certainly at the federal and • American Road and Transportation take. I don’t think that it is going to take maybe at the state level. It certainly was Builders Association (ARTBA). the form of legislation. I think clearly the the case when I was commissioner in Con- www.artba.org/pdf/2001_ Department will exercise its responsibilities necticut and it needs a much, much tea21_reauth_exec_summary_app endix.pdf consistent with law and what the require- greater and more thoughtful emphasis in ments are and be sensitive to the interface public policy and in perhaps facilitating • Association for Commuter Transpor- between transportation and energy, safety projects like the Alameda Corridor. I see tation (ACT). tmi.cob.fsu.edu/act/ and environmental issues. Beyond that, we that as another area of future emphasis. TEApositions_0802.pdf are looking very hard at what are the ad- And I suppose finally the interface be- • Northeast Association of State Trans- ministrative steps, what are the program- tween transportation, energy and the en- portation Officials (NASTO). matic steps we can take. vironment. There is a bundle of things that www.dot.state.ny.us/nasto/ tea21.html affect quality of life and we need to re- Everybody nods knowingly when I say that flect on how transportation impacts those. DOT really needs to be at the table, needs The policy position of The National Association of City Transportation Offi- to be an important player. I’ve had conver- cials (NACTO) will soon be available sations at the Department of Commerce and online. Until then, it is available on at the Department of Energy to create col- request. Call 212.998.7547.

NEW YORK TRANSPORTATION JOURNAL 15

ITS PLAYS A ROLE IN PAID U.S. POSTAGE POSTAGE U.S. NEW YORK, NY OMELAND ECURITY PERMIT NO. 7931

H S ORG. NOT PROFIT FOR B Y HENRY PEYREBRUNE, P.E.

The response of travel management efforts. ITS-security task forces have and information systems to the Sep- been established by many transporta- tember 11, 2001 attack on the World tion industry groups, including the Trade Center showed that Intelligent American Association of Highway and Transportation Systems (ITS) have a Transportation Officials, ITS America, role in Homeland Security. ITS played and the Transportation Research a substantial role on 9/11 and in the Board. Funding programs to develop weeks following it. Local and state and implement ITS-based technologies control centers were critical to the to support homeland security have deployment of transportation operat- been created by several of the modal ing strategies in the Tri-State Region. administrations within the U.S. De- The travel information system man- partment of Transportation. aged by Transcom was used exten- In January 2002, ITS America released sively along the I-95 Corridor to moni- the National Intelligent Transporta- tor road conditions and coordinate tion Systems Program Plan: A Ten messages to travelers. In the weeks Year Vision that outlines how ITS can following the event, the MTA New be utilized for Homeland Security. York City Transit website experienced The Plan both identifies ITS technolo- almost 7 million visits per day as gies that can be used to prevent ter- transit customers were provided a rorist attacks and those that can as- new transit map and updated service sist response systems should such an information almost daily. event occur. In order to build on these efforts, the In July 2002, the Rudin Center com- ITS community needs to address sev- pleted two reports for the New York eral issues that have emerged in the State Assembly Legislative Commis- months following 9/11. At the ITS- sion on Critical Transportation New York Annual meeting, held June Choices. The first, “The Context for 6-7, 2002 in Saratoga Springs, key Intelligent Transportation Systems in themes discussed included: New York State: Opportunities, Con- • The need to institutionalize and straints, and the Need for Greater build upon the extraordinary inter- Institutional Coordination,” provides agency cooperation and coordina- tion amongst the ITS community an overview of ITS as they relate to that occurred during the aftermath New York State programs and poli- of 9/11 in order to further the de- cies, and examines the need for im- velopment of an integrated ITS pro- proved interagency coordination for gram for the Tri-State Region; successfully implementing ITS. The New York, NY 10003 • The use of homeland security ef- second, “Security Applications of In- forts as an opportunity to build-in

technology productivity improve- telligent Transportation Systems: Re- 4 Washington Square North ments to ITS; and, flections on September 11 and Impli- cations for New York State,” focuses • The importance of reaching out to other professions involved in home- specifically on the security applica- land security, including the military tions of ITS. Robert F. Wagner School of Public Service Service Public of School Wagner F. Robert and emergency professionals. ▪

There have been numerous initiatives Henry Peyrebrune is Visiting NYU subsequent to 9/11 to identify where Scholar at the Rudin Center for ITS can support Homeland Security Transportation Policy and Man- agement.

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