Georgia’s Transportation Crossroads Why the Peach State Should Invest in Public Transit for the 21st Century Georgia’s Transportation Crossroads Why the Peach State Should Invest in Public Transit for the 21st Century

Georgia PIRG Education Fund

Phineas Baxandall, Ph.D., U.S. PIRG Education Fund Sarah Payne and Elizabeth Ridlington, Frontier Group

Spring 2010 Acknowledgments

The authors wish to thank Lee Biola, President, Citizens for Progressive Transit; Ray Christman, Executive Director, Livable Communities Coalition; Kevin Doyle, Commu- nications Director, Livable Communities Coalition; and Rebecca Watts Hull, Mothers and Others for Clean Air, and Program Manager, Georgia Conservancy; for their review of this report. The authors would also like to thank Tony Dutzik, Susan Rakov and Kari Wohlschlegel of Frontier Group for their editorial assistance.

The generous financial support of the Robert Wood Johnson Foundation, Rockefeller Foun- dation, Surdna Foundation, and Wallace Global Foundation made this report possible.

The authors bear responsibility for any factual errors. The recommendations are those of Georgia PIRG Education Fund. The views expressed in this report are those of the authors and do not necessarily reflect the views of our funders or those who provided review.

© 2010 Georgia PIRG Education Fund

With public debate around important issues often dominated by special interests pursuing their own narrow agendas, Georgia PIRG Education Fund offers an independent voice that works on behalf of the public interest. Georgia PIRG Education Fund, a 501(c)(3) organization, works to protect consumers and promote good government. We investigate problems, craft solutions, educate the public, and offer Georgia residents meaningful op- portunities for civic participation.

For more information about Georgia PIRG Education Fund or for additional copies of this report, please visit www.georgiapirg.org.

Frontier Group conducts independent research and policy analysis to support a cleaner, healthier and more democratic society. Our mission is to inject accurate information and compelling ideas into public policy debates at the local, state and federal levels. For more information about Frontier Group, please visit www.frontiergroup.org.

Cover photos: Heavy traffic on Atlanta’s Downtown Connector by Gregor Smith, under Creative Commons license from www. flickr.com; MARTA train by Diego Sinning, under license from www.sxc.hu; Light rail by Doug Letterman, under Creative Commons Attribution 2.0 from Wikimedia Commons; High speed rail by Remus Eserblom, under license from www.istockphoto. com; MARTA bus stop by Jack Weichen, under license from www.shutterstock.com. Layout: Harriet Eckstein Graphic Design Table of Contents

Executive Summary 1 Introduction 4 The Case for More and Better Public Transportation in Georgia 6 Travel Trends: More Driving and Higher Transportation Costs 7 The Benefits of Transit in Georgia 9

A 21st Century Transportation Vision for Georgia 11 Goals of Improved Public Transit in Georgia 11 Commuter Rail 12 Light Rail 14 Heavy Rail (Subway) Extensions 19 High-speed Rail and Other Regional Transit Options 20

From Vision to Reality: Policies for Better Transit in Georgia 24 Federal Government 24 Regional Coordination 25 State Policy 25 Conclusion 27

Notes 28

Executive Summary

eorgia is in a transportation crisis. and executing key public transportation Roadway congestion wastes time projects, such as those identified by the Gand energy, tailpipe pollution causes Concept 3 and Connect Atlanta plans, health and environmental problems, and we can drive growth and foster healthier our oil dependence only grows. communities statewide. In a time of in- Expanding public transportation can creasingly limited public funds, Georgia provide more Georgians with alterna- must spend its transportation dollars tives to driving, while addressing these where they have the most impact. For problems and laying the foundation for that reason, the state must reshape its an efficient transportation system for the transportation planning and funding 21st century. priorities to address its decades-long Public transportation already helps underinvestment in transit. hundreds of thousands of Georgians get where they need to go. Beyond saving con- Georgia’s car-centered transporta- sumers time and money, transit systems tion system is leading us to drive more, take cars off the road, cut air pollution, use more gas, spend more on fuel, lose provide a dependable way to get around or more time stuck in traffic, and create help in a pinch, and jump-start economic more global warming pollution than a growth. decade ago. But Georgia’s transit systems, despite their importance, are disjointed, under- • Georgia residents drove roughly 109 funded, and fall far short of their potential. billion miles in 2008, more than 50 Scores of good transit projects are waiting percent more miles than they drove in in the wings, while the problems affecting 1990. our transportation system only multiply. Georgia must adopt a new course and • By 2007, drivers in the state were develop a vision for transit in the 21st consuming 19 percent more fuel century that will fix the state’s historical annually than they did in 1997. The shortchanging of transit. By funding price of gasoline jumped 91 percent

Executive Summary 1 over the same period, causing Geor- worthwhile transit projects that can gians to increase the money they spent meet transportation needs in the on gasoline by more than $6 billion. state.

• Atlanta drivers lost 135 million hours A 21st century transportation system to traffic congestion in 2007, a 49 per- for Georgia should include (not in order cent increase from 1997. The wasted of priority): time and fuel cost Atlanta $3 billion • Better Transit in Metro Atlanta in 2007. o Commuter rail service to Ath- • Georgia’s transportation network in- ens, Bremen and Macon: Com- creased its carbon dioxide pollution by muter rail service between Atlanta more than 37 percent between 1990 and Macon would connect two and 2007. growing regional hubs. A Bre- men/Douglasville line would Despite many shortcomings, public expand access to rapidly develop- transit in Georgia is already paying ing suburbs, and the “Brain Train” dividends by saving money, reducing from Atlanta to Athens would link congestion, and cutting global warm- an increasingly busy bioscience ing pollution. corridor and thousands of univer- sity students and professors with • In the Atlanta region alone, public downtown Atlanta – as well as with transit saved 88 million gallons of oil each other. in 2006, translating to consumer sav- ings of $230 million at the pump. o Light rail service along the Atlanta BeltLine: Ringing the • In 2007, public transportation prevent- city with a belt of light rail would ed more than 10.5 million hours of draw together neighborhoods on traffic delay in Atlanta and saved the Atlanta’s perimeter, focus future area economy more than $225 million development, make transit a vi- in wasted time and productivity. able alternative for trips along the BeltLine by eliminating the need • In 2006, Georgia’s public transit to first travel into downtown, and systems together avoided 670,000 serve as the backbone for a robust metric tons of global warming pollu- transit system in the future. tion. This is the equivalent of remov- ing more than 130,000 cars from the o Improve local transit service and road. provide better transit connec- tions: Expanding the MARTA • More Georgians are taking advantage system, building new light rail of these benefits. Nearly 9 percent lines and increasing bus rapid tran- more passengers rode Atlanta’s MAR- sit service can fill gaps in the local TA system in 2008 than in 2007. transit network while improv- ing connections between transit Georgia needs to rethink its trans- services, making it easier for pas- portation system for the future and sengers to reach a wide range of invest in efficient and clean public destinations in the metro Atlanta transportation. There are many area.

 Georgia’s Transportation Crossroads o Build a streetcar along • Lay out a clear and compelling vision for Peachtree Street: Clean, elec- transit in the 21st century. With a strong tric streetcars can help revitalize vision and commitment to invest in downtown districts. On Peachtree transit as the sensible way forward, Street, a streetcar can help renew Georgia can build an integrated the downtown and address grow- public transportation network to ing residential and commercial meet transportation needs and solve demand for efficient local trans- problems for residents in cities and portation, while also bolstering towns around the state. Peachtree’s reputation as Atlanta’s most notable destination street. • Provide stable funding to make the vision a reality. Georgia uses state budget • Transit Between and Within Other Cities funds to pay for highway and road projects, but is one of the only states o Improve transit in smaller cities: in the country that leaves counties to Improved transit in smaller cities raise the capital for transit. As a result, and suburbs, using a variety of transit in Georgia has been under- transit systems such as light rail, funded for decades. A bold new vision bus rapid transit, and express bus for transit in Georgia must be paired services, would give residents with dedicated, adequate and sus- local transit options beyond the tained funding from regional as well automobile. as state-level sources.

o Expand intercity passenger rail • Urge Congress to enact a new federal service: Regional passenger rail transportation funding law. The new service can connect people and law should prioritize investing new activity centers around the state, capital in public transit, fixing existing linking cities such as Albany, roads and bridges rather than building Dalton, Savannah and Valdosta more highways, and spending tax- with Macon and Atlanta. payers’ money more wisely by using federal dollars to invest in high-prior- • High-speed Rail ity transportation solutions.

o Build a high-speed “bullet train” • Reform state allocation of federal trans- network for the Southeast: portation dollars. Georgia should focus High-speed rail along federally- federal money on a statewide list of designated corridors would con- priority transportation projects, rather nect cities like Atlanta, Macon and than dividing up the majority of the Savannah with each other and with funds among the state’s congressional out-of-state points like Birming- districts. ham, Chattanooga, Charlotte, and Greenville, while providing a rapid • Coordinate with other Southeast states alternative to travel through con- to develop better public transportation gested highways and airports. infrastructure throughout the region. Collaborating with both local and To address our transportation crisis, state decision-makers on a regional Georgia needs bold vision and a smart high-speed rail system would be an plan. The state should: excellent start.

Executive Summary  Introduction

eorgia’s prosperity owes a great deal and helping to fuel our prosperity. to the investments we have made in Today, however, Georgia’s automobile- Gour transportation network. centered transportation system is show- In 1836, Colonel Stephen Harriman ing signs of strain. Georgia’s population Long drove a stake into the ground to mark continues to boom, while sprawling de- the terminal site of the Western and Atlan- velopment patterns are leading residents tic Railroad for the State of Georgia. The to spend more time and money getting city that became Atlanta started around around by car than they did 10 years ago. that stake, which Long placed near what Instead of enjoying a reputation as the is today the Five Points area of downtown. South’s capital of business, learning and Businesses began to develop outward from culture, Georgia is increasingly known the railroad’s Union Depot, and continued across the country and around the world to do so as increased rail traffic moved for out-of-control sprawl, marathon com- a growing volume of people and goods mutes, pollution and gridlock. Where through the city center. once Georgia’s transportation network Within 50 years of the city’s founding, fueled our success, it now threatens to 10 major railway lines passed through At- limit growth. lanta.1 Its status as a railroad hub enabled The question now facing Georgia is Atlanta to quickly surpass older cities such how to build a transportation network that as Charleston and New Orleans to become meets the needs of the 21st century. Across the South’s preeminent city. the country, cities like Atlanta that have Later on, Georgia, like much of the grown up around the automobile—fast- rest of the nation, staked its future on the growing cities such as Charlotte, Denver, car as the transportation mode of the 20th Dallas and Salt Lake City—are coming to century. Since World War II, Georgia has recognize that the answer lies in investing built an impressive network of highways in clean, modern public transportation. that have opened new opportunities for High-speed intercity trains, commuter business, housing and recreation through- rail and subway lines, light rail and bus out the state – enriching individual lives rapid transit systems—all of these forms

 Georgia’s Transportation Crossroads of public transportation have the advan- Now more than ever, when transporta- tage of moving large numbers of people tion funds are increasingly limited, it is quickly and efficiently while reducing our time for Georgians to commit to building dependence on oil and fostering the kind a balanced, modern transportation system of compact, walkable development that is that can sustain our economy and protect increasingly in demand—and on which our environment over the long haul. This the future growth of Georgia’s urban areas report outlines projects and a plan to help must depend. make this vision of 21st century transit a Cities that have embraced 21st century reality. public transit have had to overcome long- Over the past two centuries, Georgia has standing biases against public transporta- consistently encouraged state-of-the-art tion as well as real hurdles in obtaining investments in transportation to spark our necessary funding, particularly during economy and improve our quality of life. times of economic trouble. So too must The choices we face today are no different. Georgia. Our state’s transportation fund- To maintain Atlanta’s status as a world-class ing system strongly and unduly favors city, keep our economy competitive, accom- highways over public transportation, modate future growth, ease congestion and leaving worthwhile transit projects sitting protect our environment, Georgia must on the drawing board for years, and some- invest in a bold new vision for public trans- times decades. portation. Now is the time to act.

Introduction 5 The Case for More and Better Public Transportation in Georgia

ver the past two decades, Georgia alternatives to driving – in fact, investment residents have driven more miles, in transit and levels of service have actually Ocementing our dependence on oil declined in many parts of the state. But and causing household expenditures on while Georgia’s transit systems struggle to gasoline to rise. Traffic congestion has got- provide even basic levels of service, bus and ten worse, costing the Peach State millions rail service continues to provide significant of dollars in lost productivity and wasted economic and environmental benefits to fuel. Most Georgians continue to lack the state.

Heavy traffic wastes Georgians’ time and money, pollutes our air, and increases our oil dependence. Photo credit: Drouu, under license from sxc.hu

 Georgia’s Transportation Crossroads While Georgia faces massive transpor- increase in the number of miles driven per tation challenges, improving public transit person.3 can help the state address these issues and This trend has changed in recent should be a top priority for public officials years. Rising gas prices and the economic today and in the years ahead. downturn have reduced how far individual Georgians drive each year. Annual driving per person peaked at 12,800 miles in 2001 and has since declined to 11,245. However, Georgians are, on the whole, driving far Travel Trends: More Driving more than they were even a decade ago. (See Figure 1.) and Higher Transportation Increasing vehicle travel has taken a toll Costs on Georgians’ pocketbooks. From 1997 Georgians drive far more than they did to 2007, the amount of gasoline used by just a decade ago, both in terms of total drivers in Georgia increased by 19 percent, miles and miles per person, leading to due to the fact that state residents drove higher gasoline consumption and expen- more miles and increasingly relied on less ditures and increased congestion in the fuel-efficient SUVs and trucks rather than long term. cars.6 (See Figure 2) At the same time, the Total miles driven in Georgia reached price of gasoline rose by 91 percent.7 The approximately 109 billion miles in 2008, result is that Georgians spent $12.5 billion a 55 percent increase over 1990.2 While on gasoline in 2007, more than double the most of this increase can be attributed to amount they spent (in inflation-adjusted a 49 percent increase in population, part terms) in 1997.8 In 2007, the average Geor- of the change also results from a 4 percent gian spent $1,290 on gasoline.9

Figure 1. Total Miles Driven in Georgia Annually5

140,000

120,000

100,000

80,000

60,000 Millions of milesof Millions

40,000

20,000

0

The Case for More and Better Public Transportation in Georgia 7 Figure 2. Gasoline Spending Is on the Rise in Georgia11

$14

$12

$10

$8 adjusted dollars adjusted -

$6

$4 Billions of inflation of Billions

$2

$0 1997 1998 1999 2000 2001 2002 2003 2004 2005 2006 2007

The additional problem posed by high I-285 and other highways – such as I-85 gasoline consumption is that Georgia re- and I-75 – problems are compounding as lies heavily on imports from beyond state time goes on. and national borders. Not only does this Drivers in metropolitan Atlanta, for expose Georgians to the fluctuations of the instance, lost 135 million hours to traffic global oil market and spikes in the price of congestion in 2007, 49 percent more hours gasoline, but it also means that the money than in 1997.12 This congestion in turn residents spend on fuel leaves the state. For imposes real costs on Georgia’s economy. the most part, money spent on gasoline Between the cost of wasted time and wasted does not create jobs in Georgia or support fuel, congestion cost the Atlanta area ap- the state’s economy. proximately $3 billion in 2007. This does Increased travel on Georgia’s roads has not count lost economic opportunities as also led to worsening traffic congestion, businesses and skilled workers decide to and a number of road-based projects have locate elsewhere rather than contend with attempted to deal with the problem. The Atlanta’s bad traffic. I-285 Perimeter highway, for example, has Rising vehicle travel has also increased been expanded many times since it opened Georgia’s emissions of global warming pol- for use in 1969, from an original four lanes lution. In 2007, Georgia’s transportation of traffic (two each way) to as many as 12 network emitted 37 percent more carbon lanes (six each way) in some places. Yet dioxide than in 1990.13 the greatly expanded I-285 loop remains Across the nation, worsening congestion one of the busiest and most frustrating- and the rising cost of driving are among to-drive corridors in Atlanta. And, on factors that led 22 percent more people to

 Georgia’s Transportation Crossroads choose public transit in 2008 than in 1998.14 cities is already helping to address the But Georgia has failed to take advantage of challenges of high transportation costs, the increasing demand for transit – or to traffic congestion and global warming provide many Georgians with the alterna- pollution. In the Atlanta region alone, tives to driving they desire. public transit saved 88 million gallons of In Georgia, in contrast to what oc- oil in 2006 that otherwise would have been curred elsewhere in the country, transit burned in vehicles, saving consumers $230 ridership rose just 2 percent from 1998 to million at the pump.24 These cost savings 2008. Ridership trends seem to indicate were based on an average gasoline price in that people will take transit when service 2006 of $2.68 per gallon. is made available. In Atlanta, for example, Public transportation also plays an im- the Metropolitan Atlanta Rapid Transit portant role in reducing traffic congestion. Authority (MARTA) carried 83 million A 2009 study by the Texas Transportation passengers on the subway in 2008, a 7 Institute estimated that public transpor- percent increase compared to 1998.15 Over tation prevented more than 10.5 million that same period, MARTA increased rail hours of traffic delay – equivalent to about service by 5 percent.16 Compared to 2007, 1,200 person-years – in the Atlanta metro- MARTA use increased 8.6 percent in 2008, politan area in 2007, saving the economy the greatest increase on any U.S. transit more than $225 million in wasted time and system for the year. productivity.25 In addition, public transpor- In Marietta, which is served by Cobb tation is helping to reduce global warm- Community Transit, ridership increased ing pollution in Georgia, averting about 97 percent from 1998 to 2008, while service 670,000 metric tons of carbon dioxide increased 83 percent.17 pollution in 2006.26 This is the equivalent In Athens, where more transit service of removing more than 130,000 cars from became available, ridership increased from the road.27 1998 to 2008.20 In Augusta, meanwhile, Public transportation provides a host service declined and ridership declined.21 of other important, if difficult to quan- Yet despite rising demand for expanded tify, benefits. Transit provides a source of public transportation services, cuts loom mobility to the poor, elderly, children and on the horizon. For example, MARTA, disabled, many of whom cannot afford a car already reeling from a $60 million budget or cannot drive. Investments in transit have shortfall in 2009 that triggered widespread helped spark the economic revitalization service cuts, is struggling to address an of areas around transit stations, helping expected $120 million shortfall for fiscal to create vibrant communities that are year 2011.22 The 25 percent reduction in less dependent on the automobile. Transit MARTA’s budget would force the agency riders are free from the responsibilities of to slash service.23 driving, meaning that they can use their time to read, chat, catch up on the day’s news or, in an increasing number of tran- sit vehicles elsewhere around the country, use wireless Internet to check e-mail or do important work. The Benefits of Transit Every day, Georgia residents count on in Georgia transit to get where they need to go. And Even with limited service compared to even those of us who don’t take transit ev- other large metropolitan areas, public ery day can rely on it in a pinch – during pe- transit in Atlanta and other Georgia riods of major road construction, when the

The Case for More and Better Public Transportation in Georgia 9 car is in the shop, or when gasoline prices the suburbs to downtown have little choice are high. In short, public transportation is but to drive. Commuters, for example, can a vital resource for Georgia, one that will either drive to an inner perimeter station become even more important in a world and then take a train or bus on somewhat of higher oil prices and increased concern limited routes, ride standing-room-only about congestion and global warming. express buses with limited hours and ser- Yet, Georgia’s transit network falls far vice, or drive. With such poor alternatives, short of its potential. The lack of state driving (and, too often, driving alone) is the funding has left transit systems to struggle most frequent choice. to maintain adequate levels of service. A new vision for transit in Georgia, Despite the state’s growing population and backed by consistent investment for ex- increased transportation needs, multiple panding service, can help the Peach State transit systems have reduced their service capture more of the benefits that public levels in the past 10 years.28 Atlanta is the transportation has to offer, while also second largest American metropolitan area helping people find alternatives to driving without any commuter rail service, mean- and addressing the state’s growing traffic, ing commuters who need to travel from pollution and oil dependence problems.

10 Georgia’s Transportation Crossroads A 21st Century Transportation Vision for Georgia

tlanta is one of America’s world- and cleaning up air in the Peach State. class cities. It has served as host of The projects listed in this section are Athe Olympic games, proudly claims not in order of priority. Transit investments one of the world’s busiest airports, and for must be evaluated on a range of criteria, a generation has been among the fastest from their impact on air quality and global growing cities in the country. warming emissions to their potential to Yet, Atlanta’s public transportation spark economic development and improve system falls well short of world-class sta- quality of life. Investments in high-speed tus. Atlanta is the second largest city in rail, for example, deliver different benefits America without any form of commuter to different constituencies than invest- rail service. ments in improved bus service for inner- While the metro area’s existing pub- city neighborhoods. lic transportation systems provide many All of the projects described here, how- important benefits, transit services are ever, are part of an integrated vision for woefully underfunded and, in many cases, the future of public transportation in the are being cut rather than expanded. Pub- state – a vision that Georgia should strive lic transportation options outside of the to make happen through strategic invest- Atlanta metro region are generally even ments in the years to come. more limited, leaving many Georgians with no transportation options other than the car. With a commitment to build modern, 21st century public transit, Georgia can Goals of Improved Public revitalize its transportation system and solve key problems. Commuter rail, light Transit in Georgia rail, subway, bus rapid transit and high- Any transit investment strategy for Geor- speed regional rail together offer a logical gia should have a blueprint to guide it—a solution for cutting congestion, saving con- set of goals that state constituents and de- sumers money, reducing oil dependence, cision-makers wishes to achieve. The state

A 21st Century Transportation Vision for Georgia 11 should set a target of, by 2030 at the latest, cities to downtown cores – alleviating con- completing investments that would achieve gestion on major highways leading to and the following goals: from city centers and reducing the need to devote valuable downtown real estate 1) Fix Atlanta’s struggling public trans- to parking. portation system to adequately serve Of the 13 largest metropolitan areas in the more than 50 percent of Geor- the United States, Atlanta is the nation’s gians who live in the metro area. Build second-largest city to lack commuter more and better local transit options rail.29 using a combination of subway, light In the Atlanta region, commuter rail rail and bus infrastructure. Invest in could be implemented after upgrades are commuter rail services to connect made to existing freight rail lines. Though workers and employers more efficient- freight rail traffic in the region is already ly across a broader area. quite heavy, a study of seven corridors from Atlanta to nearby towns and cities shows 2) Develop local public transportation that commuter rail is feasible and could be networks in cities and towns across successful. Three key commuter rail lines Georgia using a combination of are discussed below. transit services to provide appealing alternatives to driving. Griffin Line – Atlanta to Macon Like Atlanta, the town of Griffin grew 3) Integrate transit and land-use plan- up around a railroad in the middle of the ning wherever transit projects ex- 1800s. But today, its historic downtown ist. Use sustainable and connective is congested with traffic as an over-taxed transit-oriented development to road infrastructure struggles to serve the combat sprawl and create a healthier needs of 23,500 residents. Griffin is also future for Georgia’s communities and located between Macon, Georgia’s sixth economy. largest city, and the major transportation hub of Hartsfield-Jackson Airport. 30 At just 4) Develop long-distance alternatives to under 40 miles from downtown Atlanta, highways. Use regional rail to connect many metro-region commuters call Grif- cities within Georgia, and high-speed fin home. rail to connect major Georgia hubs Area residents and officials in cities like with activity centers in other states. Griffin and Macon have long advocated building a commuter rail line from At- Achieving these goals will create a lanta. While alleviating highway traffic for Georgia that is more economically vibrant, numerous communities between Atlanta less dependent on oil, less impacted by and Macon, the line could also ultimately traffic on the roadways, and capable of serve as a jumping-off point for passenger meeting the transportation challenges of rail service south to Columbus.31 And in the 21st century. addition to improving regional flow, such as cutting traffic and saving consumers money, the Griffin Line could also provide a direct rail connection to Hartsfield- Jackson Airport for communities south of Commuter Rail the S7/Airport MARTA stop. With many Commuter rail plays an important role in commuters and travelers to serve, MARTA linking the suburban areas of many American estimates that a new Atlanta-Macon Grif-

12 Georgia’s Transportation Crossroads fin Line could expect 1,700 to 4,500 pas- large base of strong academic institutions. senger boardings each day.32 In the greater Atlanta region alone, more Given the line’s clear public benefits, than 45 colleges and universities combine in June 2008 Governor Sonny Perdue an- with institutions such as the Centers nounced that his administration would work for Disease Control and Prevention and with federal and local authorities to fully the University of Georgia’s new Paul D. fund the Atlanta-Griffin commuter line, the Coverdell Center for Biomedical and first of its kind in the region. At the time, Health Sciences to train a skilled technical Governor Perdue said he opted to move workforce and support creative research. forward on the Griffin line rather than on Programs such as VentureLab, a project other options because $80 million in federal of the Georgia Research Alliance, help funding was available if the project moved researchers develop business plans for the forward and because there were fewer bar- innovative ideas that are incubated in the riers to an agreement to share freight tracks area’s academic settings.35 with the Norfolk-Southern Corp.33 One tangible result is the developing A long-term commuter rail vision should Bioscience Corridor on the 43-mile stretch logically extend the Griffin line to Macon, of GA-316 between Lawrenceville and which is both a major city it its own right Athens, where a number of bioscience com- and would benefit from better public trans- panies have recently opened for business. portation access to the Atlanta airport. A But, so far, the growth equation is missing a rail line linking Atlanta, Griffin and Ma- key factor: convenient, reliable transporta- con would not only better meet commuter tion connecting students and staff of these needs, but could also serve as a focal point institutions to residential neighborhoods for further transit service expansion in the and business districts. corridor. A commuter rail line between Atlanta and Athens would help move people to The “Brain Train” – Atlanta to and from these hotbeds of activity. The Athens so-called “Brain Train” is expected to Georgia is home to a growing coterie of serve between 3,000 and 10,000 riders academic and scientific institutions. These daily, depending largely on the number of centers of thought and innovation are at- trains in service during peak-use hours.36 tracting talent, stimulating the economy, The proposed line would run on existing and boosting demand for services like freight track of the CSX railroad, reducing public transportation. right-of-way and construction costs, while Georgia’s burgeoning bioscience indus- also giving commuters more transporta- try is a prime example. Made up of various tion choices. Ultimately, an Atlanta-Athens fields that include medical technology, line would also likely help reduce conges- pharmaceuticals and bioengineering, the tion on GA-316, with the added benefit of Georgia bioscience industry expanded by cutting pollution that damages air quality 38.4 percent between 2001 and 2005 – five and threatens respiratory health in the times the rate of average employment communities that abut the highway.37 growth in other industries statewide.34 To With stops at Georgia State University, produce this increasing number of skilled- Georgia Tech, Agnes-Scott College, the labor jobs, bioscience companies capitalize Centers for Disease Control and Preven- on Georgia’s low rents and cost of living tion, Emory University, Mercer Atlanta, - and on the state’s considerable intellectual Gwinnett Tech, Georgia Gwinnett College, and technical talent. the cities of Winder and Bogart on the This talent is fostered in part by Georgia’s GA-316 bioscience alley, and the University

A 21st Century Transportation Vision for Georgia 13 of Georgia, the Brain Train will serve an than 50,000 jobs could be located near its audience looking for better transit options stations.41 A recent study projected 1,600 and play a role in helping the corridor con- to 4,600 daily peak-hours passenger board- tinue to thrive. ings in 2030, depending on the number of round-trip trains operated each day.42 Bremen/Douglasville Line If land use patterns change so that more The city of Douglasville is the seat of one of compact development occurs near the rail the fastest growing counties in the nation. line, actual ridership could be greater. Between 2000 and 2007, Douglas County’s population grew by more than 30,000 residents – a 35 percent increase that made it America’s 44th fastest growing county.38 Traffic along Interstate 20, the direct line Light Rail from Douglas County’s bedroom commu- nities to downtown Atlanta, has increased BeltLine Light Rail in lockstep. For decades, Atlanta’s development has fol- As Douglas County, and Carroll and lowed a patchwork quilt pattern, creating Haralson counties to the east, continue pockets of homes and commercial areas to grow, the area’s transportation infra- with little or no connection to surround- structure will need to be expanded to meet ing areas – and this makes Atlanta an often demand. Rather than investing exclusively frustrating city to navigate. in new and expanded road capacity, the The BeltLine project can begin to region should begin to develop transit ser- change that, however, while making At- vices that will provide current and future lanta a more livable city. The creation of residents with more travel options. more than 1,200 acres of new parkland A commuter rail line from Bremen, in within just a few miles of downtown will Haralson County, to Atlanta, via Doug- create a ring around the core of Atlanta. lasville, is an important element of that Twenty-two miles of light rail will join the transit network. By sharing tracks with new parks and trails to link more than 45 the existing Norfolk-Southern railroad, previously unconnected neighborhoods. which is already in talks with the Georgia 43 Because the rail and trails will provide Department of Transportation, a com- walkable access to housing and businesses, muter rail line could help commuters save the combined result will be development time and money covering the 50-mile that is focused in smarter, more efficient trip from Bremen to downtown Atlanta.39 patterns. Planners expect that in the next Possible station sites on the line include 20 years, 50,000 new residents could settle Bremen, Temple, Villa Rica, Douglasville in the area served by the BeltLine, help- west, Austell, Mableton and downtown At- ing to revitalize neighborhoods across lanta.40 Such a line would parallel I-20 and Atlanta.44 Further, the transit, paths, and U.S. Highway 78, helping to ease traffic on green space envisioned for the BeltLine those highways and providing an alterna- will help to ensure that growth does not tive for commuters. contribute to Atlanta’s traffic and air pol- The creation of new transportation lution problems. options will become even more important In addition to driving smart growth, the as population and employment continue light rail line can also serve as a backbone to grow in the corridor. By 2030, more for a robust transit network, providing im- than 300,000 people could live near the portant connections to other transit routes. Bremen-Douglasville corridor, and more The BeltLine’s approximately 40 stations,

14 Georgia’s Transportation Crossroads for example, would include connections to to continue to grow by nearly 30 percent in MARTA’s existing subway system at four the coming decade.46 Commercial and re- locations, likely Lindbergh Center to the tail space is also expected to increase, from north, Ashby to the west, West End to 59 million to 75 million square feet, and the the south, and Inman Park-Reynoldstown residential population is expected to more to the east.45 The BeltLine will also link than double, reaching beyond 75,000 by to the proposed Peachtree Streetcar (see 2020 as families and individuals seek out next section). housing in close proximity to transit and The creation of a transit ring to comple- other urban amenities.47 ment MARTA’s existing subway lines Peachtree Street is precisely the kind of will also be a boon to commuters, since vibrant urban area that can provide a model it will prevent commuters who need to for future development in the Atlanta start and end their trips on the same side region. But the reality of Peachtree Street of the city from travelling all the way into today falls short of its potential, with more downtown. A worker in Decatur trying to cars bringing more traffic congestion and a go to Medical Center north of downtown, lack of convenient, comfortable transporta- for example, would not first have to go tion options that allow residents, workers west into Five Points and then backtrack and visitors to take full advantage of all that to the northwest, meaning that public Peachtree has to offer. transportation could become a real, time- To encourage and accommodate the efficient option for thousands of additional future growth and vitality of the Peachtree commuters. Corridor, business and community leaders With many important public benefits have called for the restoration of streetcar – from more focused development to its service along Peachtree Street – this time backbone role in promoting more efficient provided by clean, modern streetcars of travel throughout Metro Atlanta – the the type that have recently proven to be BeltLine should be a clear priority in the popular in cities such as Portland, Oregon, effort to overhaul the city’s public trans- portation system.

The Peachtree Streetcar Peachtree Street bustled with streetcars during the first half of the 20th century. Residents and businesses alike benefited from easy access to reliable public trans- port, and Peachtree rose to prominence as a main Atlanta thoroughfare. But, by around 1950, streetcars were wiped from Atlanta’s roads as cars became more affordable and more families moved to the suburbs. Through all the changes that have oc- curred in Atlanta over the years, Peachtree Streetcar traffic was a common sight on Street has remained the city’s heart and Peachtree Street during the first half of the soul. In 2000, the Peachtree Corridor was 20th century, and well before: shown here is the single largest employment center in the an early, horse-drawn Peachtree streetcar, city of Atlanta. At that time, more than 50 circa 1882. Still a major thoroughfare today, percent of all jobs in the city were located in Peachtree would once again benefit from electric the corridor – and its workforce is expected streetcar services.

A 21st Century Transportation Vision for Georgia 15 and Seattle, Washington. Streetcars play a among the thousands of people who travel different role in the transportation system it daily. At its worst point, near I-85/Exit 87 than commuter rail, light rail or buses. In- connecting to GA-400, congestion slows stead of carrying large numbers of people traffic to an average of 14 miles per hour to a particular destination, streetcars help for an incredible 29 hours each week. This people get around in densely developed bottleneck is the most severe in the region, urban areas. A Midtown worker might and makes the list of the top 300 worst high- use the streetcar to get to a restaurant for way bottlenecks in the United States.48 lunch, a visitor might use the streetcar to With major activity centers like Buck- visit Atlanta’s signature destinations, or head, Perimeter and North Point located a Peachtree Street resident might decide along its route, traffic on GA-400 is only that she can give up her car because the growing. Of the three main transportation streetcar takes her most of the places she arteries (Georgia Highway 400, Interstate need to go. As a result, the street can ac- 75 and Interstate 85) radiating northward commodate more activity with fewer cars. from Atlanta’s urban core, the GA-400 And because the streetcar would operate spur carries the highest volume. In fact, the on electricity, it would help to reduce air Transportation Planning Board expects pollution from cars, trucks and buses along 240,000 daily trips on this corridor alone the corridor. by 2030, with nearly 1,000 more trips per The Peachtree streetcar is part of a square mile than either the I-75 or I-85 broader plan to remake Peachtree Street spurs.49 with wider sidewalks, bike lanes, and new The present MARTA system helps parks – making Peachtree a world-class address travel demand by providing rail “destination street” that would enhance service as far as North Springs, with service Atlantans’ quality of life and serve as a on the 85 and 140 buses extending out to magnet for visitors to the city. Windward Parkway. But the high ridership The electric Peachtree Streetcar would on those bus routes, along with the high not only help build an urban space worthy traffic volume on GA-400 as far as Cum- of international acclaim in the heart of At- ming, means that a high-capacity transit lanta, but would also serve the local transit route could play an important role in serv- needs of a rapidly growing commercial and ing local needs and alleviating congestion. residential base. Returning to its histori- With projected 375 percent commercial cal roots, Peachtree can be revitalized as a growth along GA-400 over the next two city corridor where residents, workers and decades, the time to invest in such a high- tourists come to live, work and play; a place capacity transit link is now.51 where they can easily circulate through To meet this challenge, the city should districts with broad sidewalks, bike lanes, invest in a rail MARTA extension to high- and a convenient streetcar that is both quiet growth and high-demand areas along and clean. GA-400, from the existing North Springs station to Windward Parkway.52 And to MARTA North Line Light Rail to make the most of the rail expansion, fu- Windward Parkway ture development in the region should be Driving on Georgia Highway 400 from focused around the new transit stations. downtown Atlanta to North Point or For decades, transit-oriented development Windward Parkway would test the patience (TOD) has been used to create thriving of almost any commuter. Despite multiple urban and suburban corridors in modern widening projects over the years, the major cities. Its basic idea is both simple and north-south corridor is notorious for traffic sensible: mixed-use zoning around a major

16 Georgia’s Transportation Crossroads transit station (like a MARTA stop) en- Figure 4. GA-400 from downtown Atlanta to Northpoint/ courages compact, walkable development Alpharetta is projected to be the most heavily traveled that is good for people, businesses and the corridor by 2030.50 environment. In the TOD corridors of cit- ies like Portland, Oregon, and Arlington, Virginia, and in Atlanta’s own Lindbergh Center, a combination of mixed business and residential buildings, easy transit and pedestrian access, and attractive public spaces fosters growth but not sprawl – and strengthens community identity. Atlanta, like many cities renowned for sprawling development, can use TOD concepts to springboard smarter, more appealing growth, especially in its suburban and exurban centers. Communities on the MARTA North Line would benefit from transit-oriented development. Not only do these com- munities need a purposeful strategy to deal with the massive commercial growth expected along the corridor by 2030, but existing zoning laws, population densities and transit demand make several North Line “cluster” areas especially favorable for TOD. In particular, a December 2006 North Line TOD study by the Atlanta Transportation Planning Board identified Holcomb Bridge, North Point, Old Milton, and Windward Parkway as likely high tran- sit ridership centers that are also poised to maximize the benefits of transit-oriented development.53  These potential stations are centers of projected commercial and industrial growth, but have not yet been heavily developed. Planners anticipate that the North Point station – which planners number of acres dedicated to commercial believe is one of the most promising sites use along the North Line route will along a North Line extension – includes more than double by 2020 and that 4,900 residential units that are a mix of acreage occupied by industrial users will single family homes, condos, townhouses, nearly triple.54 Focusing commercial and and apartments, as well as 55,000 square residential development around transit feet of retail and restaurant space to serve stations can reduce the potential for new new residents.55 The remainder of the sprawling development in the region and project would be developed into more than enhance both the transportation system 1 million square feet of office space. Con- and quality of life in the area. struction of the new development would The concept plan for TOD at a future occur in stages over the next 20 years.56

A 21st Century Transportation Vision for Georgia 17 Anticipating the I-75 transportation crunch, a variety of groups are investigat- ing solutions for the corridor. Self-taxing business groups called Community Im- provement Districts (CIDs) are already operating free shuttle services to help customers and workers cope with workday traffic during the busy holiday shopping season and investing millions to make the case for area transit.58 Light rail service throughout greater Atlanta The Georgia Department of Trans- can help meet growing travel needs and reach portation has taken up the problem as economic development goals. Photo credit: well. In 2007, the DOT completed a draft LYNX light rail in Charlotte, NC. Doug study of transportation improvements for Letterman, under Creative Commons At- the I-75 North corridor.59 However, that tribution 2.0 from Wikimedia Commons study did not include light rail but instead focused on express bus service. The most robust transit scenario included in that study entailed buses sharing high-occu- pancy vehicle lanes, with traffic volume Establishing walkable, mixed-use neigh- managed through tolls to try to maintain borhoods in the vicinity of a North Point bus service reliability. Buses would make line would not only break the pattern of stops at five locations from Town Center sprawling development that is all too to Cumberland, as well as at the MARTA common around Atlanta, but would also Arts Center station before continuing on help relieve the traffic burden in one of into downtown. Atlanta’s busiest corridors. While improved bus service would provide some relief for commuters who do not want to fight traffic, light-rail transit I-75 North Light Rail to offers several advantages over bus service. Cumberland, Marrietta, and A light rail line could serve as a focus for Town Center future development in the region, com- Communities northwest of downtown bating sprawl and reducing the number Atlanta currently have no rail service. of residents who need to use a car. Light MARTA’s existing rail lines travel east, rail lines also often have higher capacity north, northeast, south and west, leav- than bus rapid transit lines, leading to the ing the entire northwest quadrant of the potential for greater shifting of ridership metropolitan area with few convenient from I-75 to the transit system. Light rail alternatives to driving. And while the I-75 is also the option preferred by local busi- corridor is already busy, projected growth ness leaders.60 will worsen congestion. By 2030, the I-75 Regardless of which option is chosen, corridor is expected to draw 160,000 trips more and better transit service in the I- daily, equal to 2,700 trips per square mile 75 corridor would address an important – the second-highest density of trips in the transportation need for the Atlanta region. metro area.57 Building a light rail line from Light rail, however, has the most potential downtown Atlanta to Town Center would for changing traffic and development pat- help the area meet growing travel needs terns in the Cumberland, Marietta and and reach economic development goals. Town Center corridor.

18 Georgia’s Transportation Crossroads I-85 North Light Rail to In July 2008, county residents in the Gwinnett County Republican and Democratic primaries Gwinnett County residents have long voted on a non-binding resolution that been skeptical about the notion of hook- asked if they would be willing to support ing themselves into Atlanta’s rail transit a modest sales tax increase to help fund 69 system. In 1990, for example, Gwinnett extension of MARTA into the county. residents overwhelmingly rejected a plan The measure failed narrowly, a defeat at- to bring MARTA rail service into the tributed to concerns about having MARTA county.61 provide the service more than opposition 70 But times are changing in Gwinnett. to rail transit. The county’s population has more than The need, and desire, for better transit doubled since the first MARTA vote, in Gwinnett County is clear – and the slim growing from 350,000 residents in 1990 to margin of the July resolution’s defeat sug- 750,000 in 2006.62 The county’s highway gests that Gwinnett County should con- network has been unable to keep up with tinue to explore ways to bring rail service the demand, with road capacity increasing to the county. just 2 percent since 1991.63 With more county residents seeking alternatives to jammed roadways, transit is getting a second look. The county began operating Gwinnett County Transit in Heavy Rail (Subway) 2000 and now offers six weekday express Extensions bus routes to downtown Atlanta and five lo- cal routes on Monday through Saturday.64 MARTA West Line to I-285 The new service has proven to be very The I-285 Perimeter is one of the most popular: despite limited service, Gwinnett important transportation links in the County Transit has the fifth highest rid- Atlanta region. The MARTA West Line ership of any transit system in the state.65 is a similarly important link in the transit Local business leaders are even more network. Yet, the two busy transportation supportive of investing in transit because facilities, while close in proximity, do not they understand its potential for boosting connect, with the West Line terminating economic development.66 just a mile and a half from I-285. Gwinnett County – and all of metro- MARTA has proposed closing this gap politan Atlanta – would benefit by linking by extending the West Line as far as I-285, the county into the region’s transit system with a further bus rapid transit connection through a light rail connection along I-85. designed to serve the busy I-20 corridor Currently, MARTA provides rail service west of the Perimeter. only as far northeast as Doraville, just Expanding MARTA West services outside the county. Multiple options for would make the line more useful overall by extending rail to Gwinnett County have connecting it to other high-use routes, and been discussed. One alignment would ex- it would help reduce time and money lost to tend rail approximately 11 miles from the congestion. Additionally, a MARTA study Doraville station to the Gwinnett Place concluded that pairing a westward subway mall.67 Constructing such a line would cost extension with express buses on bus-only up to $2.5 billion as a heavy rail subway line highway lanes (also called “bus rapid or as much as $650 million as light rail.68 transit” or BRT) is not only popular with An estimated 21,000 riders would take the businesses and residents in the Fulton area, train each day. but also is the most cost-effective option of

A 21st Century Transportation Vision for Georgia 19 and from work in a convenient and efficient way. The I-75 (Lovejoy) corridor express bus line, for example logged over 1,600 express-bus rider trips daily by February 2008 and ridership is projected to increase 50 percent (to as much as 2,300 trips per day) by 2030.73 Atlanta business owners have been early supporters of better bus services. Self-tax- ing business groups, called CIDs locally, have banded together on multiple occa- sions in recent years in attempts to tackle Georgia’s growing traffic woes – which are decidedly bad for business – and many view buses as a viable solution. A Buckhead CID, for instance, currently contributes MARTA’s Peachtree station. Expanding subway service to meet roughly 30 percent of the Buckhead Area the I-285 perimeter would make the MARTA West line more Transportation Management Association useful and help reduce time and money lost to congestion. Photo operating budget and helps fund the “buc,” credit: Diego Sinning, under license from sxc.hu a free shuttle bus service with 26 stops in the commercial Buckhead area.74 Expanding bus services would be an several west-Atlanta transit schemes.71 The important next step for improving trans- MARTA Board voted for this combined portation region-wide. Dedicated traffic subway and bus expansion in 2004, and the lanes could help cut travel time further, Transportation Planning Board incorpo- such as the proposed high-occupancy rated the plan in the Concept 3 vision it vehicle lane for the I-20 West Line expan- had developed by August 2008.72 sion.75 With many existing routes already Sensible from both a passenger and an running standing-room-only service, each economic perspective, the westward sub- individual bus trip also effectively removes way and bus extensions should be a focus of upward of 40 air-polluting cars from the improvements to the MARTA system. road. And BRT and express bus services would overlap and intersect with current and future transit lines, serving as quick connectors between hubs or providing local stops to deliver commuters closer to High-speed Rail and Other home. Regional Transit Options Improved Transit in Small Cities and Suburbs Region-wide Bus Rapid Transit Automobile-related problems like high and Express Buses energy costs, unhealthy air, and global The metro Atlanta region already uses warming pollution do not limit themselves buses to help alleviate congestion. In ad- to big cities like Atlanta. These are issues dition to the conventional bus routes that that impact people across our state, but that serve thousands of residents each day, can similarly be addressed in smaller cities “express buses” play an important role in and suburbs by rethinking transportation moving large numbers of commuters to investments.

20 Georgia’s Transportation Crossroads In a number of these towns, regional 21st century. The potential for improved transit authorities already provide services public transportation exists not only in that thousands of Georgians depend on hubs like Atlanta and Savannah, but in every day. From the CAT in Savannah cities and towns across the state – and the to Metra Transit in Columbus, transit goal of broadly extending transit benefits to systems – often bus-based – are helping more Georgians should figure centrally in individuals well beyond metro Atlanta meet the state’s plans to address the transporta- basic transportation needs. tion crisis. In Athens and Marietta, for example, both transit service and ridership increased Southeast High-speed Rail between 1996 and 2006.76 A number of cit- Around the world, in countries from France ies and towns, such as Valdosta, are plan- to Japan, high-speed trains provide quick, ning and implementing transit programs to convenient connections between major help their citizens cope with transportation cities. These “bullet trains” rapidly move challenges. In these communities, buses passengers between major transportation further add both an important service centers, typically at speeds of 90 mph and and an attractive amenity. Not only can above – in some cases reaching 220 mph. they help give low-income and elderly High-speed rail, however, has been individuals greater independence, job op- neglected in the United States for years, portunities, and the option to participate despite its many advantages. For inter-city more in community life, but they also add trips of less than 500 miles, high-speed inexpensive backup transportation for trains can be nearly as fast – and in some families and workers, and appeal to pro- cases even faster – than car or plane trips, spective residents and employers. especially when the time spent getting to Smaller cities also capitalize on the ben- and from airports and through airport efits of transit-oriented development with security is factored in. Moreover, because the opportunity for smarter growth in the high-speed trains run on electricity, they

Electric high-speed rail moves passengers efficiently over long distances, saving time and cutting pollution. Three of ten federally-designated high-speed rail corridors pass through Georgia. Photo credit: Remus Eserblom, under license from istockphoto.com

A 21st Century Transportation Vision for Georgia 21 can help reduce our transportation system’s While transit solutions like expanded dependence on oil. bus and subway service can help cut con- Americans have only one true high- gestion in metro Atlanta’s crowded road- speed rail line: Amtrak’s Acela service ways, high-speed and other passenger rail between Boston and Washington, D.C. services connecting Georgia’s urban areas Acela’s ridership is booming, and the line can help reduce inter-city highway traffic has demonstrated that it can contribute and airport congestion, and also benefit the strongly to Amtrak’s revenues.77 Its services local economy. A 2008 study of a proposed are efficient, offer passengers more space high-speed rail in California, for example, and comfort than airplanes, and provide found that a bullet train would produce a key business amenities, such as power number of economic benefits to the city of outlets for laptop computers and cell phone San Francisco, including tens of thousands access. of permanent jobs, more than 100,000 In the 1990s, the Federal Railroad construction-related jobs in the short term, Administration designated 10 transit cor- increased statewide tourism revenues, and ridors for developing a national high-speed billions of dollars in savings from the eco- rail network. Three corridors pass through nomic costs of time Bay Area commuters Georgia, connecting Atlanta, Macon and spend stuck in traffic.80 Savannah with points in Alabama, Florida The Georgia Rail Passenger Program and South Carolina. Further proposals (GRPP), a regional rail plan proposed in from Georgia’s Department of Trans- 2001, was a first step toward highspeed portation could expand high-speed rail rail for our state. Its vision includes com- elsewhere in Georgia, providing service, muter rail lines from Atlanta to cities like for example, on the busy I-75 corridor Athens and Macon, inter-city passenger between Atlanta and Chattanooga, TN. rail throughout the state, and high-speed The proposed Georgia-Tennessee train rail connections between Georgia’s major could speed travelers from downtown Chat- cities and beyond. On-board amenities tanooga to the Hartsfield airport in just 60 such as wireless internet could draw a core minutes, cutting road travel time in half and business clientele, helping professionals eliminating airport wait time as well.78 maximize their commute or business travel Momentum has been shifting toward time. Families could travel longer distances creation of high-speed rail in America. In more comfortably and less expensively, and January 2009, a coalition of transportation even non-riders would enjoy the cleaner officials from Georgia, South Carolina and air, reduced global warming pollution, and North Carolina released a report which freer streets that Georgian high-speed rail demonstrated that a high-speed rail line would encourage. between Charlotte and Macon is fea- The combined services of the proposed sible, and in places trains could travel at plan could transport 10.7 million commut- speeds of up to 150 miles per hour.79 The ers and 2.1 million inter-city riders annu- American Reconstruction and Recovery ally in 2030.81 The Atlanta-to-Chattanooga Act, passed in February 2009, provided high-speed rail portion of the project is in $8 billion dollars in high speed rail funds early environmental impact review, with a to 31 states, including funds for separate complete study of the project expected in studies of possible future high-speed rail fall 2009.82 connecting Atlanta to Birmingham, a line However, progress on the GRPP has connecting Louisville, Nashville, and Chi- moved in fits and starts – in part for lack cago to Atlanta, and a route from Macon of funding. Some plans have suggested to Jacksonville. renewing a CSX railroad lease on the

22 Georgia’s Transportation Crossroads state-owned Western & Atlantic Railroad and commit to providing state funding for as a possible method to generate revenues, its share of the project. Other states and while others maintain that counties should regions are already laying the groundwork be responsible for operating expenses.83 for this funding: California voters, for Whatever the case, Georgia needs to find example, adopted an initiative in Novem- dedicated funding to make the positive ber 2008 to provide $10 billion worth of vision contained in the regional rail plan funding for construction of a bullet train a reality. between San Francisco and Los Angeles. In addition, Georgia should fight for With other regions, including the Mid- federal high-speed rail funding that would west, working on high-speed rail plans of enable the state and region to begin building their own, Georgia needs to move forward out the Southeast’s high-speed rail network quickly or risk being left behind.

A 21st Century Transportation Vision for Georgia 23 From Vision to Reality: Policies for Better Transit in Georgia

eorgia’s existing transportation sys- Federal Government tem clearly cannot meet the state’s G21st century needs. A broad and am- The main federal transportation funding bitious vision for public transit will help the law – the Safe, Accountable, Flexible, Efficient state develop a healthier economy, cleaner Transportation Equity Act: A Legacy for air, and stronger communities. Users (SAFETEA-LU) – expired in the The question, though, as always when it fall of 2009, and was temporarily extended comes to transit issues in Georgia, is how by Congress with allocations from general to pay for it. revenues. It is possible that the coming Georgia’s current transportation fund- federal bill will be the most sweeping ing system is well-suited for building reform of federal transportation policy highways. Funding from the state gas tax is in nearly two decades. America’s aging dedicated to road and bridge projects, while transportation network is increasingly most federal funding is dispersed across the in need of costly repairs. Meanwhile, state with little thought of which projects amid rising gasoline prices, Americans provide the biggest “bang” for the buck. In are now experiencing the downside of a time of increasingly limited public funds, the highway-centered investment policies Georgia must spend its transportation of the last few decades – which leave too dollars where they have the most impact. many Americans with few transportation For that reason, the state must reshape choices. In short, the status quo cannot its transportation planning and funding continue. priorities to address its decades-long un- derinvestment in transit. Georgia officials must demand a 21st To achieve a 21st century transportation century federal transportation funding system for Georgia – and to reap the many law. The new law should require a large benefits of expanded public transportation investment in needed improvements to – we need a 21st century means for planning transit systems and intercity rail, while and funding transportation projects. focusing federal highway investment

24 Georgia’s Transportation Crossroads on the need to maintain and repair lies within our control. Making several key existing infrastructure. changes in state policy can have a strong Federal money should then be used in and positive impact on how we meet our a targeted and strategic way to encourage growing transportation needs. transportation investments that minimize oil dependence, congestion, environmental pollution and sprawl, and encourage the Strategy #1: development of compact, livable com- Provide dedicated state funding munities where driving is an option, not for transit a requirement. Georgians have good ideas about how to Such a dramatic shift would benefit meet our transportation needs with public Georgia by providing additional resources transit, but these ideas are frequently held for needed transit projects, including some back by a lack of funds. Around the state, that have remained on the drawing board planning documents detail the benefits of for years. In addition to pushing for new public transit and propose viable projects, federal transportation priorities, Georgia but repeatedly add the caveat, “pending should also work aggressively through ex- funds.” isting avenues to obtain federal funding for Many states provide at least part of transit infrastructure projects, including the money necessary to build and oper- high-speed passenger rail. ate transit systems. Georgia, on the other hand, is one of only a handful of states which fails to provide a dedicated funding source for public transportation. MARTA, Regional Coordination for example, the nation’s 9th largest urban At the crossroads of North-South and transit system, is the largest such system East-West traffic, Georgia is the hub of that receives no state funding. the Southeast region. From its central loca- Without state support, Georgia’s transit tion, Georgia is well positioned to provide network depends on the federal govern- the vision and leadership for a 21st century ment, local governments, and even busi- interstate public transportation network nesses for funding just to make ends meet. and help springboard growth in a healthier Expecting local governments to bear these Southeast. costs alone is unfair and counter-produc- Making the regional transportation sys- tive because: tem more efficient is good for the region as a whole – and good for Georgia. Georgia • Georgia as a whole benefits from the should take a lead role in improving the investment in public transit – through Southeast’s transportation system by cleaner air, clearer roads, economic coordinating the development of mod- development and other benefits. ern public transportation infrastructure Transit investments that grow the with our neighbors to the north, west, economy of the metropolitan Atlanta and south. region, that connect Georgia’s cit- ies with those in other states, or that improve the ability of residents to get to jobs and education have long-term economic benefits for all Georgians. It State Policy is only right and proper that all Geor- The good news for Georgia is that a size- gians pay their fair share for those able part of our state’s public transit future benefits.

From Vision to Reality 25 • Local governments are unlikely to in- estate transfer fees. Georgia should review vest capital resources in major transit all the available options to identify poten- projects that would benefit residents tial funding sources for transit and even across the state. Asking local govern- consider whether the state constitutional ment to pay for transit that benefits provision that dedicates revenue from the everyone would be like asking indi- gasoline tax solely to highways and bridges vidual counties to separately pay for makes sense in light of the state’s 21st cen- sections of highway that run through tury transportation needs. their unique jurisdictions. It slows the Across the country, the public has process and delays the benefits of bet- demonstrated that it is willing to support ter transit at time when the state needs increased funding for public transporta- it badly. Regional special purpose tion. In November 2008, 70 percent of local-option sales taxes (SPLOSTs) are transit ballot questions around the country an important local tool in jumpstart- were victorious, undaunted by a declining ing key projects, but the state should economy.84 not use them as a substitute for state- Of course, state lawmakers should expect level funding. some guarantee of good use in exchange for the badly needed funds. The state should Georgia will never realize the benefits of conduct a comprehensive audit and review transit until the state embraces a more ra- of existing transit systems and administra- tional system for funding public transpor- tive agencies to eliminate wasteful spend- tation. To capitalize on the economic, ing, with added accountability measures social and environmental benefits of over each transit project’s lifetime. transit, Georgia should designate an adequate and long-term state-wide revenue stream to public transporta- Strategy #2: tion. A question likely to be on the ballot Reform state allocation of federal in 2012 will give voters the opportunity to transportation dollars consider providing more stable funding. Current state law makes specific require- Individual counties will be allowed to vote ments for allocating Georgia’s federal on a one percent dedicated sales taxes for transportation funds. Eighty percent of transportation. federal dollars are divided equally among But, while regional funding is impor- the state’s 13 congressional districts. The tant, it should not be substituted for the remaining 20 percent is spent on state-wide kind of additional, statewide funding that transportation priorities identified by the Georgia needs. To deliver transit for the state government. While helpful in its aim coming century, more must be done at the to provide funding for both local and state- state level. wide projects, the law also may not serve A number of different revenue stream Georgians’ interests because: options could help Georgia fund its public transportation investments. Other funding • It means less money for more expen- sources used across the country include sive projects that would deliver major transportation-based taxes and fees, such benefits across many congressional as a gas tax, parking tax, rental car tax, tire districts. or vehicle battery tax; tolls from publicly owned toll roads or revenues from conges- • It assumes that the best transporta- tion pricing; and development fees like tion solutions for each district will all development impact, storm water, and real cost the same amount of money, even

26 Georgia’s Transportation Crossroads though this is unlikely to be true. Conclusion Some districts are small, densely- populated and urban, while others are The state of Georgia has grown around large, sparsely-populated and rural. its transportation infrastructure. Unfor- Each congressional district has unique tunately, that infrastructure is no longer transportation needs, and the vari- meeting our state’s growing needs. And, ous solutions to meet these needs will with time and money lost in traffic, poor have different price tags. Assuming air quality, deepening oil dependence, and otherwise creates uneven transporta- rising global warming pollution, more of tion budget surpluses and shortfalls the same, familiar transportation strategy – which do not benefit Georgia as a is simply not good enough. whole. However, by investing in a vision for 21st century public transportation, Georgians Moreover, the current funding structure can help grow a smarter future for our is a recipe for bad governance, giving local economy, a safer future for our children’s representatives more incentive to earmark health, and a cleaner future for our envi- funds for their own counties rather than ronment. improve transportation broadly for the This vision is already being nurtured in state. To avoid this pitfall, state lawmak- plans across the state. The projects listed ers should amend the transportation in this report form a starter “to-do” list for funding law to better reflect statewide public transit, but more can and must be needs. Possible amendments could include accomplished. Georgia cannot fail to take shifting the 80-20 balance of the existing advantage of the solutions public trans- law, creating a need-based funding applica- portation offers. We must invest now in tion process, or dedicating a larger share mobility that will help ease our transporta- of flexible federal transportation funds to tion problems. public transit projects.

From Vision to Reality 27 Notes

1 Georgia Secretary of State Karen C. Sector Energy Consumption Estimates, Se- Handel, History of Atlanta, downloaded lected Years, 1960-2007, Georgia, 28 August from http://sos.georgia.gov/tours/html/ 2009. atlanta_history.html, 1 September 2008. 7 Expenditures: U.S. Department of 2 U.S. Department of Transportation, Energy, Energy Information Administra- Federal Highway Administration, Highway tion, State Energy Data System: Prices and Statistics series of reports, Historical Sum- Expenditures, Table 5. Transportation Sector mary to 1995 and annual reports from 1996 Energy Price and Expenditure Estimates, Se- to 2008. lected Years, 1970-2007, Georgia, 30 October 3 Population: 1990s population estimates 2009. Price information was adjusted for from U.S. Census Bureau, Time Series of inflation using data from Federal Reserve Georgia Intercensal Population Estimates by Bank of Minneapolis, Consumer Price Index, County: April 1, 1990, to April 1, 2000, 17 1913-, downloaded from www.minneapol- April 2002; 2000s population estimates isfed.org/Research/data/us/calc/hist1913. from U.S. Census Bureau, Annual Esti- cfm, 9 February 2010. mates of the Resident Population for the 8 Ibid. United States, Regions, States, and Puerto 9 U.S. Department of Energy, Energy Rico: April 1, 2000 to July 1, 2009 (NST- Information Administration, State Energy EST2009-01), December 2009. VMT: U.S. Data System: Prices and Expenditures, Table Department of Transportation, Federal 5. Transportation Sector Energy Price and Highway Administration, Highway Statis- Expenditure Estimates, Selected Years, 1970- tics series of reports, Historical Summary 2007, Georgia, 30 October 2009. to 1995 and annual reports from 1996 to 2008. 10 Ibid. 4 See note 2. 11 See note 7. 5 Ibid. 12 David Schrank and Tim Lomax, Texas Transportation Institute, The Texas 6 U.S. Department of Energy, Energy In- A&M University System, The 2009 Urban formation Administration, State Energy Data Mobility Report, July 2009. System: Consumption, Table 11. Transportation

28 Georgia’s Transportation Crossroads 13 Tony Dutzik and Elizabeth Ridling- 22 MARTA, Deficit Reduction Survey, ton, Frontier Group, and Emily Figdor, downloaded from www.zoomerang. Environment America Research & Policy com/Survey/WEB22A5P6WA5NF, 10 Center, Too Much Pollution: State and Na- February 2010; and MARTA, MARTA tional Trends in Global Warming Emissions Monthly, July 2009. from 1990 to 2007, Fall 2009. 23 “Decatur Stations Affected by 14 American Public Transportation As- Proposed MARTA Bus Service Cuts,” sociation, 2009 Public Transportation Fact Decatur Metro, 9 February 2010. Book, April 2009. 24 U.S. PIRG Education Fund, A Better 15 Federal Transportation Administra- Way to Go: Meeting America’s 21st Century tion, National Transit Database, TS2.1 Transportation Challenges with Modern Public - Service Data and Operating Expenses Time- Transit, March 2008. Series by Mode, downloaded from www. 25 See note 12. ntdprogram.gov/ntdprogram/data.htm, 10 February 2010. 26 See note 24. 16 Vehicle revenue miles increased by 27 Calculated assuming 19.654 pounds of 5 percent, per Federal Transportation carbon dioxide per gallon of gasoline, per Administration, National Transit U.S. Department of Energy, Energy Infor- Database, TS2.1 - Service Data and mation Administration, Voluntary Report- Operating Expenses Time-Series by Mode, ing of Greenhouse Gases Program, Fuel downloaded from www.ntdprogram.gov/ and Energy Source codes and Emission co- ntdprogram/data.htm, 10 February 2010. efficients, downloaded from www.eia.doe. gov, 10 January 2006. In 2008, the average 17 Vehicle revenue miles increased by car achieved 24.1 miles per gallon, per U.S. 83 percent, per Federal Transportation Environmental Protection Agency, Light- Administration, National Transit Duty Automotive Technology and Fuel Database, TS2.2 - Service Data and Economy Trends: 1975 Through 2008, Operating Expenses Time-Series by System, EPA420-S-08-003, September 2008. In downloaded from www.ntdprogram.gov/ 2006, Georgia recorded 8,265,000 motor ntdprogram/data.htm, 10 February 2010. vehicle registrations (non-bus) and 113,532 18 Bob Keefe and Ariel Hart, “MARTA million vehicle miles traveled, per U.S. tops ridership list but faces cuts; ’08 usage Department of Transportation, Federal up 8.6%: Sales tax funding lags, but limits Highway Administration, Highway Statis- on stimulus money could be altered,” tics, Tables MV-1 and VM-1, 2006. Atlanta Journal-Constitution, 10 March 28 Vehicle revenue miles declined. See 2009. note 15. 19 Ibid. 29 R. L. Banks and Associates, Commuter 20 Vehicle revenue miles increased, per Rail Study Update, Presentation to TPB Federal Transportation Administration, Board, 14 December 2007. National Transit Database, TS2.2 - Service 30 City size statistics from U.S. Census Data and Operating Expenses Time-Series Bureau, Georgia 2007 Population Estimates, by System, downloaded from www. Table GCT-T1-R. Population Estimates ntdprogram.gov/ntdprogram/data.htm, 10 (geographies ranked by estimate), 2007. February 2010. 31 Georgia Department of 21 Federal Transportation Transportation, Georgia Rail Passenger Administration, National Transit Program, 2006 Fact Sheet, 2006, 5. Database, TS2.2 - Service Data and Available from www.dot.state.ga.us/ Operating Expenses Time-Series by System, travelingingeorgia/passengerrail/ downloaded from www.ntdprogram.gov/ Documents/2006_grpp_factsheet.pdf. ntdprogram/data.htm, 10 February 2010.

Notes 29 32 R.L. Banks & Associates, Inc., 39 See note 32. Commuter Rail Plan Update: A Report to the 40 Ibid. Transit Planning Board, Georgia Department of Transportation, and Metro Atlanta 41 Ibid. Chamber of Commerce, December 2007, 12. 42 Ibid. 33 Dave Williams, Atlanta Business 43 URS Corporation, for Metropolitan Chronicle, “Georgia governor endorses Atlanta Rapid Transit Authority, Detailed commuter rail for Atlanta,” 12 June 2008. Screening Results and Selection of Locally 34 BioGeorgia, Georgia’s Bioscience Preferred Alternatives, January 2007. Industry, downloaded from www. 44 EDAW, et al., for the Atlanta georgiabiosciences.com/bioscienceindustry. Development Authority, Atlanta BeltLine aspx, 4 September 2008. Redevelopment Plan, November 2005. 35 Genetic Engineering and 45 URS Corporation, for Metropolitan Biotechnology News, Atlanta Bioscience Atlanta Rapid Transit Authority, Detailed Breaks Into Top Ten, 1 February 2005, 25:3. Screening Results and Selection of Locally Available from www.genengnews.com/ Preferred Alternatives, January 2007. articles/chitem.aspx?aid=875&chid=0. 46 Bleakly Advisory Group for the 36 The Georgia Brain Train Group, a Peachtree Corridor Task Force, Analysis of non-profit group of activists, business the Development, Population and Employment owners, and community members led by Trends in the Peachtree Corridor 2000- the developer Emory Morsberger, predicts 2020, 26 March 2007, 4. Available from that as many as 10,000 passengers would www.peachtreecorridor.com/UserFiles/ use the Brain Train daily. From Georgia TrendAnalysis.pdf. Brain Train Group, FAQ’s, downloaded 47 Kimley-Horn and Associates, Inc. from www.georgiabraintrain.com/talking_ for the Peachtree Corridor Partnership, points.asp, 1 September 2008. R.L. Banks Peachtree Streetcar: Evaluation of Technical & Associates projects a year 2030 daily and Operational Issues, October 2007, 9. ridership of 3,000 to 7,500 total train boardings. From R.L. Banks & Associates, 48 INRIX, National Traffic Scorecard: Inc., Commuter Rail Plan Update: A Report Atlanta Metropolitan Area [fact sheet], 2008. to the Transit Planning Board, Georgia Available from http://scorecard.inrix.com/ Department of Transportation, and Metro scorecard/Scorecard/INRIX%20National Atlanta Chamber of Commerce, December %20Traffic%20Scorecard%201-25%2010. 2007, 59. pdf. 37 Living within 500 meters (about a 49 Transit Planning Board, Transit third of a mile) of a motorway has been Planning Board (TPB) Regional Transit shown to substantially decrease long-term Vision [PowerPoint], Open House, Cobb lung function in children ten to eighteen, County Library, 1 April 2008. Available regardless of overall air quality in their from www.tpb.ga.gov/Documents/Base region. Dr. W. James Gauderman et al., %20Concept%203%20Presentation%20- “Effect of exposure to traffic on lung %20Open%20House.pdf. development from 10 to 18 years of age: 50 Transit Planning Board, Transit a cohort study,” The Lancet, 17 February Planning Board (TPB) Regional Transit 2007, 369:571-577. Vision [PowerPoint], Open House, Cobb 38 U.S. Census Bureau, Population County Library, 1 April 2008. Available Division, Table 8: Population Estimates for from www.tpb.ga.gov/Documents/Base the 100 Fastest Growing U.S. Counties with %20Concept%203%20Presentation%20- 10,000 or More Population in 2007: April 1, %20Open%20House.pdf. 2000 to July 1, 2007, 20 March 2008. 51 375 percent growth in commercial

30 Georgia’s Transportation Crossroads development projected by 2030. From 65 Based on comparison of bus Metropolitan Atlanta Regional Transit ridership data in Federal Transportation Authority, North Line Transit-Oriented Administration, National Transit Development Study Report, December 2006, Database, TS2.1 - Service Data and 2-29. Operating Expenses Time-Series by Mode, 52 For details on MARTA’s selection downloaded from www.ntdprogram.gov/ of this route, see Metropolitan Atlanta ntdprogram/data.htm, 24 October 2008. Regional Transit Authority, North Line 66 See note 61. Light rail study: Transit-Oriented Development Study Report, Gwinnett Village CID, Extension of December 2006. Light Rail Transit System, downloaded 53 Metropolitan Atlanta Regional Transit from http://gwinnettvillage.com/index. Authority, North Line Transit-Oriented php?option=com_content&task=view&id=1 Development Study Report, December 2006, 81&Itemid=130, 11 November 2008. 2-42. 67 See note 61. 54 See note 53, page 2-29. 68 Ibid. 55 See note 53, page ES-13. 69 Ballot Questions for the July 15, 2008 56 See note 53, page ES-14. Primary, downloaded from http://alt. coxnewsweb.com/ajc/metro/050808/ 57 See note 50. ballot_questions.htm, 10 November 2008. 58 Town Center Area Community 70 Michael Pearson, “MARTA Gains Improvement District, 2006 Progress Traction in Gwinnett,” Atlanta Journal- Report, no date. Constitution, 15 July 2008. 59 Federal Highway Administration, 71 Heavy rail transit on MLK combined Georgia Department of Transportation, with BRT on I-20 tied with BRT-on-I- Federal Transit Administration, and 20-only for highest score on the MARTA Georgia Regional Transportation study’s Final Alternative Scores Evaluation Authority, Northwest I-75/I-575 Corridor, Results, and had a higher composite value Alternatives Analysis/Draft Environmental across all goals. Metropolitan Atlanta Impact Statement, May 2007. Rapid Transit Authority, West LineWest 60 Amanda Casciaro, “Cumberland Line Locally Preferred Alternative Report: Growth Rate Will Demand Rapid Alternatives Analysis/Draft Environmental Transit,” Marietta Daily Journal, 1 Impact Statement, August 2004, 9-8,9. February 2007. Available from www.itsmarta.com/ newsroom/West%20Line/Current/LPA/ 61 Tom Barry, “Dreaming of MARTA,” West%20Line%20LPA%20Ch%209.pdf. Atlanta Business Chronicle, 11 January 2008. 72 Transit Planning Board, Adopted 62 2006: U.S. Census Bureau, State and Concept Plan 3 Regional Transit Vision, County Quickfacts, downloaded from http:// 28 August 2008. Available from www. quickfacts.census.gov/qfd/index.html, tpb.ga.gov/Documents/TPB/Aug08/ 11 November 2008. 1990: Tom Barry, Attachment%202%20_AgendaItem%20IV_ “Dreaming of MARTA,” Atlanta Business Concept%203%20map.pdf. Chronicle, 11 January 2008. 73 Transit Planning Board, Atlanta 63 See note 61. Regional Transit System: Today’s Reality 64 Gwinnett County, Gwinnett [fact sheet], February 2008, 2. Available County Transit, downloaded from www. from www.tpb.ga.gov/Documents/TPB_ gwinnettcounty.com/cgi-bin/gwincty/ Newsletter_021208.pdf. egov/ep/gcbrowse.do?channelId=- 74 Buckhead Community Improvement 12797&pageTypeId=536880236, 11 District, Frequently Asked Questions, November 2008.

Notes 1 downloaded from www.buckheadcid.com/ California High-Speed Rail: Economic Benefits faqs, on 24 November 2008. and Impacts in the San Francisco Bay Area, 75 Metropolitan Atlanta Rapid Transit October 2008, 1. Authority, West Line Locally Preferred 81 Georgia Department of Alternative Report: Alternatives Analysis/ Transportation, Georgia Rail Passenger Draft Environmental Impact Statement, Program: 2006 Fact Sheet, 2006, 1. August 2004, Chapter 9. Available Available from www.garail.com/Pages/pdf/ from www.itsmarta.com/newsroom/ grpp2006factsheet.pdf. West%20Line/Current/LPA/West%20Lin 82 See note 78. e%20LPA%20Ch%209.pdf. 83 Georgia Department of 76 Vehicle revenue miles increased, per Transportation, Georgia Passenger Rail Federal Transportation Administration, Program: Strategy for Implementation, National Transit Database, TS2.2 - Service Operational and Capital Funding Data and Operating Expenses Time-Series [PowerPoint presentation], 10 April 2006. by System, downloaded from www. Available from www.dot.state.ga.us/ ntdprogram.gov/ntdprogram/data.htm, 24 aboutGeorgiadot/Board/Documents/ October 2008. 2008%20meetings%20presentations/april/ 77 Bloomberg News, “Acela Trains May PASSENGERRAIL.pdf. In the case of Expand to Meet Demand,” The Boston the proposed Clayton County commuter Globe, 27 August 2008. rail, disagreement arose over whether the 78 Dana Wilbourn, “GDOT Previews county or the state should bear the bulk of High-Speed Rail Line Between operation and maintenance expenses once Chattanooga, Atlanta,” The Chattanoogan, the line was built. Daniel Sillman, “GDOT 20 September 2007. wants Lovejoy commuter rail launched,” Henry Daily Herald, 17 May 2008. 79 Volpe National Transportation Systems Center, for the Georgia 84 American Public Transportation Department of Transportation, Evaluation Association, Over 70% of Public of High-Speed Options in the Macon-Atlanta- Transportation Ballot Measures Pass – At least Greenville-Charlotte Rail Corridor, August $75 Billion approved for public transportation 2008 (released January 2009). on state and local ballot initiatives [press release], 5 November 2008. 80 Bay Area Council Economic Institute,

32 Georgia’s Transportation Crossroads