Transportation for Communities - Advancing Projects Through Partnerships
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Transportation Phases
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Applications - Integrated Planning - Greenhouse Gas
- Practitioner's Guidebook
- SHRP 2 C09 Draft Final Project Report
- Integrating Climate Change into Transportation Planning, FHWA
- Resources for Estimating Transportation Emissions, U.S. EPA
- Integrating GHG Reduction Objectives into Decision Making, NCHRP
- Transportation and Climate Change Clearinghouse, U.S. DOT
- Transportation's Role in Reducing GHG Emissions, U.S. DOT Report
Concern about climate change and its impacts has led many communities to consider ways to reduce greenhouse gas (GHG) emissions. Transportation is a leading contributor to GHG emissions as well as one of the fastest growing sources. Transportation practitioners are often asked to respond to questions from the public and decision makers about the implications transportation plans and projects have on GHG emissions.
There are three areas of information that support this application.
- The GHG Technical Process is a series of steps involving data collection and analysis
of the implications of transportation choices on GHG. See
The GHG Technical Process to learn more.
- The Decision Guide represents the key decisions in the transportation process that
are made through collaboration among partners and with input from stakeholders.
See The Decision Guide and GHG Planning to
understand how Technical information is used at each of these key decisions to inform
decision makers.
- State legislation, regional action plans and even project-level analysis is currently
underway in many areas to address GHG emissions.
See Examples from Practice.
The GHG Technical Process
Greenhouse gases include:
- water vapor
- ozone, carbon dioxide (CO2)
- methane (CH4)
- nitrous oxide (N2O)
- hydrofluorocarbons (HFCs)
- perfluorocarbons (PFCs)
- sulfur hexafluoride (SF6)
Of these, carbon dioxide is one of the most important human-influenced contributors to climate change.
The GHG Technical Process provides a step-by-step framework for the analysis of GHG as part of transportation decision making. Although there are many individual steps in this technical process, this high-level framework captures what is common across transportation agencies.
Technical considerations are necessary to: (1) evaluate potential opportunities and (2) inform decision makers. In order for practitioners to take action, policy makers must be convinced of the value and make ongoing decisions that provide support. See the information in the next tab, The Decision Guide and GHG Planning, to see how this technical information can be used to support policy decisions.
Click on each of the steps to understand what activities fit into this part of the process.
Click on a step for more information.
Collect Information
Define Goals and Measures
Identify Options
Evaluate Options
Select Preferred Option
Collect Information
Information refers to data, tools, plans, reports, stakeholders or other resources that may be used to support consideration of GHG emissions associated with transportation options. Some questions to consider are:
- What are the existing or readily available tools to support analysis?
- What travel data (speeds and VMT), emissions data, other activity data is available and appropriate for analysis?
- What modes are to be considered?
- What analysis years will be considered?
- What will the consideration of GHG cost and what revenue sources might be available?
- What findings are relevant to consider from previous plans and studies?
- Is the planning region or study area identified for project impacts sufficient for the consideration of GHG emissions?
- What is the level of stakeholder interest in reducing GHG emissions?
Define Goals and Measures
The purpose of this step is to identify specific goals, objectives and targets for emissions reductions along with methods to measure how transportation options relate to those goals. It may be necessary to translate these into broader goals for decision makers. Some questions to consider are:
- How specific should GHG goal statements be? For example, should they be integrated into a broader environmental goal or considered separately?
- What GHG emissions mitigation measures may be considered?
- What are the relevant criteria to evaluate the impact?
- What corridor travel data (current and projected travel volume, speeds, congestion levels), corridor land use data (current and projected population and employment characteristics), and/or corridor-specific GHG emissions data is available to support evaluation criteria?
- How does the consideration of GHG emissions relate to the plan goals or project purpose and need?
- What GHG evaluation measures will be used to evaluate transportation options? For example: CO2, CO2e, VMT?
- What is the agency's capability to produce this information? What "control" does the agency have over the factors that influence the measure outcome?
Identify Options
Transportation options may be referred to as strategies, solutions, alternatives, or scenarios depending on the stage of transportation planning or project development. Some questions to consider at any stage are:
- What transportation options can provide GHG reduction benefits and are potentially applicable in the region or study area?
- What are the potential GHG reduction strategies (i.e. VMT reduction, emissions controls, land use changes, mode shifts) that may be applicable in region or study area?
- How do these strategies perform when combined or when treated separately?
- Are there interactive effects to consider? For example strategies which work better in combination or that work against each other.
- Are there potential strategies that require more refined analysis or study and therefore should not be considered at this time?
Evaluate Options
The process of evaluating the pros and cons of various options or combinations of options is often iterative. The final options may be quite different than the initial selection or represent a "hybrid" that combines different features of individual options. Some questions to consider are:
- What are the associated benefits or disincentives that should be considered?
- How do the options compare in terms of cost, emissions and impact to other adopted plans or projects?
- What associated mitigation measures are required?
- What is the relative importance of GHG-reduction benefits compared to other transportation benefits?
Select Preferred Option
The comparison of options must result in a final choice in order to implement the plan or project. This is often referred to as the "preferred" option which is selected ultimately by the decision makers. Some questions to consider are:
- What are the results of the technical comparison of options?
- What other policies or strategies are needed to support the selected option?
- What is the level of GHG-reduction and cost-effectiveness for each option?
- How does the level of reduction compare to the adopted targets?
- Are there resources available to implement the option?
- How quickly can the option be implemented?
The Decision Guide and GHG Planning
National inventories suggest that the transportation sector contributes approximately 28% of the U.S. GHG emissions; with roadway vehicles constituting 82% of transportation GHG emissions (see Practitioner's Guidebook).
The transportation Decision Guide is a framework of key decisions required by law or regulation or which have become part of successful practice. These decisions require action by those empowered to make the final decisions about plan adoption, funding priorities or project implementation. Technical information is used at each of these key decisions to inform decision makers. Technical steps and key decisions are related through the flow of data and analysis.
To understand how the GHG technical
process relates to transportation decision making, click on the steps below. Hover
over individual key decisions for a snapshot of this relationship. Key decisions
that are grayed-out have no specific relationship to greenhouse gas.
Collect Information
Collect data, tools, plans, reports, stakeholders and other resources that may be used to support consideration of GHG emissions within transportation plans and projects
Define Goals and Measures
Identify potential GHG-related goals, objectives and targets along with methods to measure effectiveness within the broader transportation goals
Identify Options
The broad range of strategies, scenarios, solutions and alternatives that may incorporate GHG-reducing strategies
Evaluate Options
Analysis and comparison of GHG strategies within transportation options and other considerations to develop plans and projects
Select Preferred Option
Incorporation of GHG-reducing strategies within the selected option of the adopted plan or approved project
LONG RANGE TRANSPORTATION PLANNING
Define scope of GHG emissions to be considered, and identify key information, stakeholders and partners with an interest that should be included in planning and analysis of GHG reduction strategies.
Establish GHG reduction as a planning consideration and incorporate goals, objectives into the plan vision and goals.
Define the GHG-related evaluation criteria, metrics, analytical methods, targets and level of analysis that will be applied to understand the potential GHG reduction resulting from proposed scenarios.
This key decision is not associated with GHG analysis.
Reach agreement on how revenue from both transportation and other sources may be considered to support GHG reduction goals.
Define and incorporate strategies that will address regional GHG reduction goals.
Establish plan scenarios that include evaluation of GHG reduction impacts/benefits.
Estimate and document potential GHG reduction impacts from the preferred plan scenario, while balancing the potential for negative impacts.
This key decision is not associated with GHG analysis.
PROGRAMMING
Identify potential non-transportation funding/revenue sources (public or private) that could be available for projects aimed at reducing GHG emissions.
Identify how GHG-related funding sources will be allocated to support individual projects.
This key decision is not associated with GHG analysis.
Compare the potential GHG reduction impacts of individual projects and the timeframe over which those impacts will occur to prioritized projects.
This key decision is not associated with GHG analysis.
This key decision is not associated with GHG analysis.
CORRIDOR PLANNING
Identify key resources, stakeholders and partners with an interest in GHG emissions reduction and define scope of GHG emissions to consider in the corridor planning process.
Identify problems in the corridor that relate to increased GHG emissions. Define the potential opportunities for reducing GHG emissions arising from the corridor improvement.
Establish GHG reduction as a study consideration and incorporate goals for reducing GHG emissions into the corridor goals.
Inform the scope of environmental review based on the scope of GHG emissions that may be considered, the potential GHG reduction impacts, and the types of information needed for analysis at the corridor level.
Identify GHG-related evaluation criteria, performance metrics, targets and analytical methods that can be used to understand the GHG reduction impacts of the corridor plan.
Evaluate and compare the potential GHG reduction impacts of each proposed solution and the ability to address goals for the corridor.
Inform the selection of the solution set with GHG-related outcomes.
Incorporate GHG reduction into the criteria for corridor project prioritization and sequencing.
Consider potential GHG reduction impacts of the various projects or strategies in the corridor plan and the timeframe over which they are applicable.
ENVIRONMENTAL REVIEW/NEPA MERGED WITH PERMITTING
Gather GHG-related information for consideration. Identify stakeholders and partners interested in GHG emissions and invite them to participate in environmental review. Decide whether and how GHG emissions will be considered.
Identify existing challenges related to GHG emissions. Consider consistency of project purpose with GHG reduction goals identified during long range planning and corridor planning.
Identify an area of potential impacts for the analysis of GHG emissions that accounts for the potential influence of the project on existing or future travel patterns and activity as well as development patterns. The area of potential impacts for cumulative impacts may be appropriate.
Identify evaluation criteria, performance metrics, targets and methods related to GHG reduction that will be used to provide NEPA level analyses.
Identify alternatives that support GHG reduction objectives.
Consider how the alternatives impact potential GHG emissions reduction.
Compare the GHG reduction impacts of alternatives carried forward and mitigation actions that will need to be taken for any negative impacts.
This key decision is not associated with GHG analysis.
This key decision is not associated with GHG analysis.
LEDPA
This key decision is not associated with GHG analysis.
This key decision is not associated with GHG analysis.
This key decision is not associated with GHG analysis.
Examples from Practice
Climate Change - Model Language in Transportation Plans, FHWA
Integrating Climate Change into the Transportation Planning Process, FHWA
Draft NEPA Guidance on the Effects of Climate Change and GHG Emissions, Council on Environmental Quality
Columbia Law School EIS Databases (databases of environmental impact statements addressing climate change)
Additional resources are available through The Center for Climate Change Law at the Columbia Law School
The extent to which GHG emissions are considered in transportation decision making varies greatly. In some states there are regulations that require GHG reduction to meet established targets. Other states and some MPOs have introduced GHG into their planning activities. Although many transportation agencies are interested in reducing GHG emissions, additional information or support may be needed. Examples of states with legislation to reduce GHG emissions, regional climate action plans, and GHG analysis in environmental review are provided here.
States with legislation to reduce GHG emissions
Some states have already adopted requirements to limit GHG emissions resulting from transportation. In order to account for these reductions through the planning process, goals and objectives in the long range plans of MPOs in these states have to be consistent with the established targets at the state level.
Click on the arrows below for detailed information about each example.
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Oregon House Bill 3543
- In 2007 Oregon passed House Bill 3543 to reduce carbon emissions. The law requires that the state halt increases in GHG emissions by 2010 and follow with reducing those emissions to 10 percent below 1990 levels by 2020 and to 75 percent below 1990 levels by 2050. HB 3543 also creates the Oregon Global Warming Commission, charged with recommending ways to achieve the emission reduction goals, monitoring the impacts of global warming, and increasing Oregonians' awareness of the scientific aspects and economic impacts of global warming. The legislation also creates the Oregon Climate Change Research Institute which will facilitate climate change research and provide technical assistance to local governments.
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California Senate Bill 375
- California passed Senate Bill 375 in 2008 to enact mandatory GHG reduction targets in regional transportation planning. The law directs the California Air Resources Board (CARB) to provide each of the state's 18 MPOs with GHG emissions reduction targets from the auto and light truck sector for 2020 and 2035. MPOs will then prepare a "sustainable communities strategy (SCS)" that demonstrates how the region will meet its greenhouse gas reduction target through integrated land use, housing, and transportation planning. Each final SCS will be reviewed by CARB to determine whether it would, if implemented, achieve the greenhouse gas emission reduction target for its region. Once adopted by the MPO, the SCS will be incorporated into that region's federally enforceable regional transportation plan (RTP).
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Washington House Bill 2815
- In 2008 Washington State enacted climate change framework legislation House Bill 2815 which provides a framework for reducing greenhouse gas emissions in the Washington state economy. The Bill includes a requirement to reduce light-duty vehicle miles traveled (VMT) per capita 18 percent by 2020, 30 percent by 2035, and 50 percent by 2050.
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Maryland Greenhouse Gas Reduction Act of 2009
- Maryland's Greenhouse Gas Reduction Act of 2009 requires the state to reduce statewide GHG emissions by 25 percent from 2006 levels by 2020 and adopt a final plan to achieve reductions by 2012. The Act required the Department of Environment to: (i) develop a 2006 Statewide greenhouse gas emissions inventory;(ii) develop a projected "business as usual" emissions inventory for 2020; and (iii) develop and publish for public comment a proposed plan to achieve a 25 percent emissions reduction by 2020. In addition, the Act stipulated that the final GHG reduction plan adopted by 2012 should establish the need and timeline for seeking any additional legislative authority necessary for full implementation of plan measures.
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New York Legislation A1391-2011
- New York Legislation A1391-2011 establishes the New York state climate change task force, the membership of the task force, and the powers and duties of the task force. The legislation highlighted two key objectives of the task force as follows: (i) conducting an in-depth examination of issues related to global climate change on the citizens, natural resources, and the economy of the state, and (ii) developing a climate action plan that will incorporate both measures related to mitigating carbon emissions and adapting to the potential impacts of climate change carbon. The state climate action plan will include an inventory of statewide GHG emissions and results of the evaluation of current and future GHG emissions reduction measures.
Regional Climate Action Plans
In the absence of formal legislation, some states and regions are accounting for GHG emissions because of community interest in mitigating for climate change and a focus on regional sustainability. Several states, MPOs, and local agencies have developed Climate Action Plans that outline strategies for reducing GHG emissions in the transportation sector. By 2010, 36 states had developed or were developing some sort of climate action plan, including creation of GHG inventories and forecasts. These plans typically propose specific policies and programs for consideration by the state legislature or implementation by a state agency.
Several MPOs and regional agencies are also incorporating GHG reduction and climate change mitigation in the goals of their long-range transportation plans. Case studies of MPO activities in integrating GHG reduction goals into transportation decision making can be found on the U.S. DOT's Transportation and Climate Change Clearinghouse. Some examples are provided below.
Click on the arrows below for detailed information about each example.
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Chicago Metropolitan Agency for Planning (CMAP) GO TO 2040 regional plan
- CMAP includes climate change mitigation in the goals of its GO TO 2040 regional plan. CMAP, with help from the Volpe Center, prepared a strategy paper on how goals to reduce GHG may be incorporated into the plan through policies, investments, and other actions (Climate Change Strategy Paper). The paper takes the Chicago region's legislative and policy context into account while drawing on the experience of other peer regions doing the same. For example, GO TO 2040 recommendations include providing good alternatives to automobile travel to reduce GHG emissions while also reducing energy consumption and improving quality of life.
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Metro (Portland, Oregon region) 2035 Regional Transportation Plan
- Metro addresses how an integrated set of transportation investments, land use policies and other strategies can most effectively reduce GHG emissions in the Transportation and climate change section of its 2035 Regional Transportation Plan . As part of the plan, Metro commits to voluntarily monitoring GHG emissions and implementing specific GHG reduction policy objectives and actions that reduce the need to drive and improve the operating efficiency of the transportation system.
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Houston-Galveston Area Council (H-GAC) 2035 Regional Transportation Plan Update
- H-GAC acknowledges the need for climate change adaptation and mitigation in the trends and challenges of its 2035 Regional Transportation Plan Update. As stated in the plan, H-GAC is working with TxDOT and research institutes in the region on the issue of GHG mitigation and establishing analytical methodologies for measuring the reduction of GHG emissions at the project level.
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Puget Sound Regional Council (PSRC) (Seattle region) Four-Part Greenhouse Gas Strategy
- PSRC is committed to reducing transportation-related GHG emissions in the region. The regional growth, transportation, and economic strategy, VISION 2040 refers to climate change mitigation in its goals, trends and challenges, strategies, and performance measures. It establishes annual average GHG emissions as a performance measure to monitor the plan. It further commits the agency to: development of a regional air quality guide and a climate change action plan, and working with other agencies and partners to develop greenhouse gas emission reduction estimates. PSRC's regional transportation plan, Transportation 2040 contains a Four-Part Greenhouse Gas Strategy. PSRC has updated its transportation model to incorporate GHG emissions analysis in the comparison of alternatives and scenarios.
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Delaware Valley Regional Planning Commission (DVRPC) (Philadelphia region) Connections long range plan
- DVRPC supports a goal to reduce regional greenhouse gas emissions 50 percent by 2035, which will put the region on track to achieve an 80 percent reduction in greenhouse gas emissions by 2050. This reduction is considered necessary to keep the impacts of global climate change within an acceptable range. As part of this effort, DVRPC has outlined a regional goal to "Reduce greenhouse gas emissions by 50% while building an energy-efficient economy" in its long range plan, Connections, adopted in 2009. More information about the plan and DVRPC's Energy and Climate Change Initiatives program area is available on their website.
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Denver Regional Council of Governments (DRCOG) Metro Vision 2035 Plan
- DRCOG's Metro Vision 2035 Plan was recently updated with a focus on several sustainability goals, involving increase in urban density, reduction in GHG emissions, reduction in daily per capita vehicle miles traveled, and reduction in the number of single occupancy vehicle trips.
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Santa Fe Metropolitan Planning Organization Sustainable Santa Fe Plan
- The City of Santa Fe recently published its draft Sustainable Santa Fe Plan. The plan considers climate change and energy efficiency, among other aspects of sustainability. Transportation is one of several sectors addressed in the plan. The document discusses the impact of transportation on climate change, as well as several key determinants of transportation GHG emissions.
GHG Analysis in Environmental Review
In recent years, environmental studies for several transportation projects have analyzed the impacts of a proposed project on GHG emissions. Several examples are listed below.
Click on the arrows below for detailed information about each example.
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SR 520 Bridge Replacement and HOV Program Environmental Impact Statement (Washington State)
- The SR 520 Bridge Replacement and HOV Program will enhance safety by replacing the aging floating bridge and keep the region moving with vital transit and roadway improvements throughout the corridor. For the I-5 to Medina section of the project, the technical analysis in the environmental impact statement showed that the project would reduce vehicle miles traveled on SR 520 by 5 to 10 percent annually and reduce greenhouse gas emissions in the corridor by nearly 10 percent compared to the No Build alternative.
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Columbia River Crossing (CRC) Project Environmental Impact Statement (Oregon and Washington State)
- The Columbia River Crossing (CRC) is a transportation project led jointly by the Oregon Department of Transportation (ODOT) and the Washington State Department of Transportation (WSDOT). The CRC project will significantly improve safety and congestion in the five-mile segment of I-5 between SR 500 in Vancouver and Victory Boulevard in North Portland. CRC will replace the Interstate Bridge, improve five miles of I-5, extend light rail to downtown Vancouver and improve bicycle and pedestrian facilities. A detailed GHG analysis was completed as part of the project EIS, concluding that the "build" alternatives resulted in fewer GHG emissions than a no build alternative. The locally preferred alternative is expected to reduce regional emissions by approximately 0.5 percent. At a more local level (the 12.2-mile length of I-5 surrounding the CRC project area), the preferred alternative is expected to reduce emissions by roughly 5.4 percent. The build alternative would carry lower volumes of traffic due to higher transit use, a tolled bridge, and higher traffic speeds in the project area.
In 2009 the CRC Greenhouse Gas Emissions and Climate Change Evaluation was awarded a National Environmental Excellence Award by the National Association of Environmental Professionals, stating that the project "demonstrates a novel method to assess the impacts of greenhouse gas emissions and through the environmental review process identify a less overall impacting alternative for a complex transportation project."
- The Columbia River Crossing (CRC) is a transportation project led jointly by the Oregon Department of Transportation (ODOT) and the Washington State Department of Transportation (WSDOT). The CRC project will significantly improve safety and congestion in the five-mile segment of I-5 between SR 500 in Vancouver and Victory Boulevard in North Portland. CRC will replace the Interstate Bridge, improve five miles of I-5, extend light rail to downtown Vancouver and improve bicycle and pedestrian facilities. A detailed GHG analysis was completed as part of the project EIS, concluding that the "build" alternatives resulted in fewer GHG emissions than a no build alternative. The locally preferred alternative is expected to reduce regional emissions by approximately 0.5 percent. At a more local level (the 12.2-mile length of I-5 surrounding the CRC project area), the preferred alternative is expected to reduce emissions by roughly 5.4 percent. The build alternative would carry lower volumes of traffic due to higher transit use, a tolled bridge, and higher traffic speeds in the project area.
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I-5 HOV Lane Extension Project Environmental Assessment (California)
- The I-5 HOV Lane Extension Project in California was proposed to improve existing and future traffic operations on I-5 from San Juan Creek Road to Avenida Pico while minimizing environmental and economic impacts. As part of the environmental assessment for the project, a focused traffic analysis was prepared to estimate the impact that the proposed project would have on regional VMT and regional VHT. Since the impact of GHG emissions is a global rather than a local issue, the impact of the proposed project on GHG emissions was calculated using regional traffic data. The potential impacts of the project alternatives on GHG emissions are outlined in the chapter on Climate Change.