98th Congress JOINT COMMTTTEE P { S. PBT. App. 10 2d Session J 98-164 HARD CHOICES A Report on the Increasing Gap Between America's Infrastructure Needs and Our Ability To Pay for Them Appendix 10. MASSACHUSETTS A CASE STUDY PREPARED FOR THE USE OF THE SUBCOMMITTEE ON ECONOMIC GOALS AND INTERGOVERNMENTAL POLICY OF THE JOINT ECONOMIC COMMITTEE CONGRESS OF THE UNITED STATES FEBRUARY 25, 1984 Printed for the use of the Joint Economic Committee U.S. GOVERNMENT PRINTING OFFICE 31-895 0 WASHINGTON: 1984 JOINT ECONOMIC COMMITTEE (Created pursuant to sec. 5(a) of Public Law 304, 79th Congress) SENATE HOUSE OF REPRESENTATIVES ROGER W. JEPSEN, Iowa, Chairman LEE H. HAMILTON, Indiana, Vice Chairman WILLIAM V. ROTH, JR., Delaware GILLIS W. LONG, Louisiana JAMES ABDNOR, South Dakota PARREN J. MITCHELL, Maryland STEVEN D. SYMMS, Idaho AUGUSTUS F. HAWKINS, California MACK MATTINGLY, Georgia DAVID R. OBEY, Wisconsin ALFONSE M. D'AMATO, New York JAMES H. SCHEUER, New York LLOYD BENTSEN, Texas CHALMERS P. WYLIE, Ohio WILLIAM PROXMIRE, Wisconsin MARJORIE S. HOLT, Maryland EDWARD M. KENNEDY, Massachusetts DAN LUNGREN, California PAUL S. SARBANES, Maryland OLYMPIA J. SNOWE, Maine Baucm R. BARTLETT, Extecutive Director JAMES K. GALBRAITH, Deputy Director SuBCOMMITTEE ON ECONOMIC GOALS AND INTERGOVERNMENTAL POLICY HOUSE OF REPRESENTATIVES SENATE LEE H. HAMILTON, Indiana, Chairman LLOYD BENTSEN, Texas, Vice Chairman AUGUSTUS F. HAWKINS, California ROGER W. JEPSEN, Iowa OLYMPIA J. SNOWE, Maine ALFONSE M. D'AMATO, New York (U) Preface Infrastructure problems are widespread. They do not respect regional or state boundaries. To secure a better data base concerning national and state infrastructure conditions and to develop threshold estimates of national and state infrastructure conditions, the Joint Economic Committee of the Congress requested that the University of Colorado's Graduate School of Public Affairs direct a twenty-three state infrastructure study. Simultaneously, the JEC appointed a National Infrastructure Advisory Ccmnittee to monitor study progress, review study findings and help develop policy recommendations to the Congress. In almost all cases, the studies were prepared by principal analysts Erom a university or college within the state, following a design developed by the University of Colorado. Close collaboration was required and was received from the Governor's staff and relevant state agencies. Because of fiscal constraints each participating university or college agreed to forego normal overhead and each researcher agreed to contribute considerable time to the analysis. Both are to be commended for their commitment to a unique and important national effort for the Congress of the United States. (m3) National Infrastructure_ NllvisoryoCaarittee JointEco omic Cneutt-ee infrastructure Proiect Chairman Honorable Henry S. Reuss former Chairman Joint nconomic Canmittee Chapman, Duff & Paul Washington, D.C. 20006 Vice Chairmen Mr. Peter Goldmark Mr. Lee White Executive Director Vice President &Manager Port Authority of N.Y. &N.J. Denver Office New York, N.Y. Smith Barney, Harris Upham & Co. Denver, Colorado Committee Members Mr. Roy Bahl Honorable Michael Dukakis Director, Metropolitan Studies Program Governor of Massachusetts Syracuse University Boston, Massachusetts Syracuse, N.Y. Mr. C. Phillip Baumel Mr. Robert Georgine Professor President Agricultural Economics Building &Construction Trades Iowa State University Washington, D.C. Ames, Iowa Mr. Michael Brewer Mr. Hyman Grossman Director of Government Relations/ Vice President, Municipal Rating Public Affairs Standard & Poor's Corp. Cummins Engine Co. New York, N.Y. Columbus, Indiana Mr. Pat Choate Honorable William Hobby Senior Policy Analyst, Economics Lt. Governor of Texas TRW, Inc. Austin, Texas Washington, D.C. Mr. Peter M. Dawkins Honorable Thomas H. Kean Managing Director Governor of New Jersey Lehman Brothers Kuhn Loeb, Inc. Trenton, New Jersey New York, N.Y. (V) VI Mr. Thomas Klutznlcx Mr. Leland S. Prussia Miller, Klutznick, Davis &Grey Chairman of the Board Chicago, Illinois Bank of America San Francisco, Ca. Ms. Juanita Kreps Honorable Charles Royer Former U.S. Secretary of Coxmerce Mayor Duke University City of Seattle Durham, N.C. Seattle, Washington Honorable Richard D. Lamm Mr. George Schrader Governor of Colorado L.D. Brinkman &Co. Denver, Colorado Dallas, Texas Mr. Peter Lewis Honorable Ted Schwinden Partner Governor of Montana Lazard Freres Helena, Montana New York, N.Y. Ms. Jane McGrew Honorable John Spellman Steptoe &Johnson Governor of Washington Washington, D.C. Olympia, Washington Honorable John Mutz Honorable Mark WMite Lt. Governor of Indiana Governor of Texas Indianapolis, Indiana Austin, Texas Mr. Raymond Nasher Mr. John Wiedeman Chairman President Nasher Co. American Society of Civil Engineers Dallas, Texas Atlanta, Georgia i Mr. George Peterson Honorable Coleman A. Young Director, Public Finance Center Mayor The Urban Institute City of Detroit Washington, D.C. Detroit, Michigan PARTICIPATINJG SPATIS AND RICOARCIII1IUS State Researchers and Affiliation Alabama Niles Schoening University of Alabama California Fred Collignon University of California at Berkeley Colorado James Ohi University of Colorado at Denver Florida Earl Starnes Neil Sipe University of Florida Indiana Salmon Shah Morton Marcus Indiana University Kentucky Phillip W. Roeder Dennis B. Murphy University of Kentucky Louisiana James D. Schilling Louisiana State University Maine Carl Veazie University of Southern Maine Maryland David L. Puryear Johns Hopkins University Massachusetts Karen Polenske Gerald Sussman Richard Tabors Lyn Todman PAdrian Walter Joint Center for Urban Policy Research MIT and Harvard University Missouri L. Kenneth Hubbell University of Missouri at Kansas City Montana James Ohi University of Colorado at Denver New Jersey Robert Lake Rutgers University New Mexico Lee Zink University of New Mexico (VII) Vm New York Rae Zimmerman New York University North Carolina Edward Kaiser William J..ruimond Kathleen M. Heady University of North Carolina at Chapel Hill Ohio Michael Pagano Miami University Oklahoma Jean Mcnonald Tim Adams Tom Jones University of Oklahoma Oregon Ken Tollenoor University of Oregon South Carolina James Hite M.S. Henry B.L. Dillman Clemson University Tennessee Niles Schoening University of Alabama Texas William E. Claggert University of Texas at Dallas Washington Phillip Bourque University of Washington AN ASSESSMENT OF PUBLIC INFRASTRUCTURE IN MASSACHUSETTS April 1983 (Latest revision, September 1983) by Karen R. Polenske, Gerald Sussman, Richard D. Tabors, Lynn C. Todman, and Adrian R. Walter Joint Center for Urban Studies of the Massachusetts Institute of Technology and Harvard University TABLE OF CONTENTS Title Page List of Figures xv List of Tables xvi List of Abbreviations xviii Acknowledgments xix AN ASSESSMENT OF PUBLIC INFRASTRUCTURE IN MASSACHUSETTS 1 Part 1, EXECUTIVE SUMMARY FOR MASSACHUSETTS 2 General Conclusions 2 Specific Conclusions 2 Part 2, BACKGROUND TO THE ANALYSIS 6 METHODS OF ANALYSIS 6 State Agencies 7 Regional Planning Commissions 13 CONTEXT FOR THE STUDY 15 Economic Factors 17 Population Trends -17 Part 3, TRANSPORTATION INFRASTRUCTURE 19 MASSACHUSETTS BAY TRANSPORTATION AUTHORITY 19 Bus System 22 Facilities, Age, and Current Condition 22 Maintenance Plans and Costs 25 Purchase Plans and Costs 29 Rapid Transit 29 Facilities and Age 29 Construction Plans and Costs 31 The Green Line 35 Commuter Rail 37 Facilities 37 Maintenance Plans and Costs 38 Construction Plans and Costs 43 Title Page STATE-OWNED RAILROAD GRADES AND CROSSINGS 47. STATE-OWNED RAILROAD BRIDGES AND TUNNELS 47 REGIONAL TRANSIT AUTHORITIES 49 Facilities 49 Maintenance Plans and Costs 49 HIGHWAY BRIDGES 51 Facilities, Age, and Current Conditions 51 Maintenance Plans and Costs 55 Construction Plans and Costs 59 AIRPORTS 59 Facilities and Age 60 Maintenance Plans and Costs 63 Construction Plans and Costs 67 SEAPORTS 67 Facilities, Age, and Condition 70 Maintenance Plans and Costs 71 Construction Plans and Costs 72 HIGHWAYS 74 Facilities and Age 75 Maintenance Plans and Costs 80 Construction Plans and Costs 81 TUNNELS 81 SUMMARY 82 Part 4, ENVIRONMENTAL INFRASTRUCTURE--WATER 84 WATER 84 Water Supply 90 Existing Facilities and Age 92 Current Conditions 95 Needs 98 Plans 99 Title Page Water Distribution ioi Existing Facilities and Age 102 Current Conditions 103 Maintenance Plans 107 Maintenance Costs 109 Construction Plans 115 SUMMARY 116 Part 5, ENVIRONMENTAL INFRASTRUCTURE--SEWERAGE SYSTEM 118 SEWAGE TREATMENT 119 Existing Facilities and Age 120 Current Conditions 120 Maintenance Costs 123 Construction Costs 123 Construction Needs 123 Construction Plans 130 SEWAGE COLLECTION SYSTEM 130 Existing Facilities and Age 130 Needs 134 Construction Plans 134 HAZARDOUS WASTE 135 Existing Facilities 136 Needs 137 Costs 137 SUMMARY 137 Part 6, SUMMARY OF NEEDS AND REVENUES: MASSACHUSETTS 140 NEEDS 140 REVENUES 145 Title Page APPENDIX A, MASSACHUSETTS REGIONAL TRANSIT AUTHORITIES 149 APPENDIX B, RTA FACILITY SURVEY 150 APPENDIX C, MASSACHUSETTS INFRASTRUCTURE STUDY, 1983: QUALITY OF INFORMATION AVAILABLE 151 APPENDIX D, REGIONAL PLANNING DISTRICTS 154 APPENDIX E, INTERVIEW GUIDELINES 155 LIST OF REFERENCES 163 LIST OF FIGURES Figure No. Title Page 1-1 Capital Expenditures in Massachusetts by Type, FY1968-69 through FY1981-82 4 1-2 Revenues in Massachusetts for Capital Expenditures for Highways and Sewers, FY1973-74 through FY1982-83 5 3-1 1982 Commuter Rail Network 39 3-2 Number