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Partnership Planning for the Northeast Corridor
Donnie Maley, Director, Planning Northeast Corridor Commission
APA 2017 National Planning Conference, New York City Session #9107305
Learning Objectives • Facilitating consensus-driven decision-making • Creating tools to share information and collaborate across
agencies • Communicating complex technical information to decision-
makers Speakers • Donnie Maley, Northeast Corridor Commission • Rich Andreski, Connecticut Department of Transportation • Alex Flemming, Amtrak • Bryan Rodda, Federal Railroad Administration
2
Partnership Planning for the NEC
3
What is the NEC?
51 million people 17% US population, 2% US land area
4 of the nation’s 10 largest cities
$3 trillion in annual economic output 20% of US GDP
5th largest economy in the world Ahead of France, behind Germany
4
What is the NEC?
40,000 daily Amtrak riders 50% of Amtrak riders
149 daily Amtrak trains 65% of Amtrak trains
5
What is the NEC?
780,000 daily commuter rail riders
2,000 daily commuter rail trains
6
What is the NEC?
$50 billion commuting workforce
More intercity travel within the region than all airlines combined
Connecting east coast ports to Midwestern manufacturers
7
What is the NEC?
$38 billion state-of-good-repair backlog $26 billion major bridges and tunnels $12 billion basic infrastructure assets
$500 million lost annually to delays
$100 million potential loss per day B&P Tunnel - 1873
Hudson River Tunnel - 1910 Walk Bridge - 1889
8
Who has a stake in the NEC?
9
Who has a stake in the NEC?
4 Infrastructure Owners
10
Who has a stake in the NEC?
4 Infrastructure Owners
20+ Station Owners
11
Who has a stake in the NEC?
4 Infrastructure Owners
20+ Station Owners
9 Passenger Rail Operators
12
Who has a stake in the NEC?
4 Infrastructure Owners
20+ Station Owners
9 Passenger Rail Operators
9 States
13
Who has a stake in the NEC?
4 Infrastructure Owners
20+ Station Owners
9 Passenger Rail Operators
9 States
1 Federal government
14
Who has a stake in the NEC?
4 Infrastructure Owners
20+ Station Owners
9 Passenger Rail Operators
9 States
1 Federal government
2 Modal administrations
15
Who has a stake in the NEC?
4 Infrastructure Owners
20+ Station Owners
9 Passenger Rail Operators
9 States
1 Federal government
2 Modal administrations
5 Congressional committees
16
What is the Commission?
Non-voting representatives • Freight Railroads • Connecting States • Commuter Agencies
One Member Each
Four Members
Five Members
17
What is the Commission?
Operator Cost Sharing
Collaboration, Transparency,
and Accountability
Federal-State Funding Partnership for
State-of-Good-Repair Backlog
Partnership Framework
18
What is the Commission?
Five-Year Plan One-Year Plan Annual Report
http://nec-commission.com
19
What Have We Learned About Collaboration?
Communicating Internally
Stakeholders needed to understand each other’s plans
• Isolate data relevant to your topic
• Standardize data across stakeholders
• Streamline data collection and sharing
• Package information in digestible pieces
Stakeholders can weigh in on each other’s plans
20
What Have We Learned About Collaboration?
Communicating Internally
Making Decisions
Stakeholders had complex/ unclear roles and responsibilities
• Establish explicit goal of consensus
• Formalize committee/working group structure
• Take meeting preparation seriously
• Engage in proactive meeting facilitation
Stakeholders have an equal opportunity to participate and decisions carry the full weight of the group
21
What Have We Learned About Collaboration?
Communicating Internally
Making Decisions
Stakeholders preferred to craft their own messages
• Define purpose narrowly and explicitly
• Put audience first
• Balance parochial needs with shared needs
Stakeholders communicate messages that carry the full weight of the group
Communicating Externally
Partnership Planning for the Northeast Corridor
Rich Andreski, Bureau Chief, Public Transportation Connecticut Department of Transportation
APA 2017 National Planning Conference, New York City Session #9107305
Partnership Planning for the Northeast Corridor
Bryan Rodda, Community Planner Federal Railroad Administration
APA 2017 National Conference, New York City Session #9107305
May 9, 2017
5/22/2017
FRA – Office of Railroad Policy and Development
Moving America Forward
F E D E R A L R A I L R O A D A D M I N I S T R A T I O N
FRA’s involvement in the Northeast Corridor
Administer and oversee
• Capital and operating funding to Amtrak
• Amtrak planning and project delivery activities
• Compliance with federal regulations, including: • Environmental regulations • Americans with Disabilities Act and Civil Rights • Passenger rail safety
Voting member of NEC Commission
Not a direct owner or operator
5/22/2017
FRA – Office of Railroad Policy and Development
Moving America Forward
F E D E R A L R A I L R O A D A D M I N I S T R A T I O N
Federal membership in the NEC Commission
Composition and roles
• Five voting members, with one member serving as NEC Commission Co-Chair
• At least one member each from the following USDOT offices and administrations:
Agency Typical Commission Member(s) Office of the Secretary of Transportation (OST)
- Undersecretary for Policy - Chief Financial Officer
Federal Railroad Administration (FRA)
- Administrator / Deputy Administrator - Chief Counsel
Federal Transit Administration (FTA) - Administrator / Deputy Administrator
5/22/2017
FRA – Office of Railroad Policy and Development
Moving America Forward
F E D E R A L R A I L R O A D A D M I N I S T R A T I O N
How USDOT partners with the NEC Commission
Contribute to committees and working groups
Offer Federal perspectives and resources
• Alert for potential pressure points between stakeholders
• Ensure consistency in messaging and approach toward cross-jurisdictional projects
• Guide and advise on USDOT goals or Congressional objectives
Cost Allocation Planning Operations & Performance
5/22/2017
FRA – Office of Railroad Policy and Development
Moving America Forward
F E D E R A L R A I L R O A D A D M I N I S T R A T I O N
Learning and collaboration
• Spur USDOT effort to harmonize some cross-agency requirements
• Focus attention on large-scale NEC issues, including both major
projects and on-going policy issues
Leverage the Commission’s products
• Cost Allocation Policy
• Cost sharing impact on budget and federal grant programs
• Reporting and transparency provisions
• Reports and Research
• Represents blend of diverse viewpoints
• Provides common data and facts for NEC
• Generates recommendations for action
How does the Commission help USDOT?
5/22/2017
FRA – Office of Railroad Policy and Development
Moving America Forward
F E D E R A L R A I L R O A D A D M I N I S T R A T I O N
Collaborative planning overview
Planning cycle Prior to NEC Commission Today
Short-term (< 2 years)
• Independent agency processes
• No systemic collaboration
• Collaborative, annual One-Year Implementation Plan
Medium-term (5+ years)
• Independent agency processes
• No systemic collaboration
• Collaborative, annual update to Five-Year Capital Investment Plan
Long-term (20+ years)
• Last corridor-wide planning effort dates from 1970s • NEC FUTURE
Federal lead role
5/22/2017
FRA – Office of Railroad Policy and Development
Moving America Forward
F E D E R A L R A I L R O A D A D M I N I S T R A T I O N
Previous long-term planning had an impact
Safety and system upgrades
Infrastructure renewal projects made some progress • Upgraded track quality, replaced or rehabilitated bridges, and realigned curves • Electrified 155-mile New Haven-Boston section (in 1990s), enabling high-speed service
• Eliminated remaining DC-NYC grade crossings and reduced remaining number in CT
• Consolidated dispatching operations and
upgraded train control systems Photo credits, from top left: 1) Amtrak; 2) Michael Kurras (user Shreder 9100 at English Wikipedia), used under Creative Commons; 3) Niiantic River Bridge Replacement, Amtrak; 4) Garg Engineering (link); 5) NEC Commission
5/22/2017
FRA – Office of Railroad Policy and Development
Moving America Forward
F E D E R A L R A I L R O A D A D M I N I S T R A T I O N
NEC metro area population
Growth demands a new long-term vision
Since 1970s, train movements have increased…
1,250
2,150
Daily Trains on the NEC, 1975 and 2016
1975
2016
growth in intercity trips since 2005
>750k 34%
daily commuter trips in 2016
…and the region’s population and economy have grown.
…as has ridership
+72%
One-fifth of US economy, more than $3 trillion in annual output
Sources: Amtrak, NEC Commission, US Census Bureau
1970 2010
5/22/2017
FRA – Office of Railroad Policy and Development
Moving America Forward
F E D E R A L R A I L R O A D A D M I N I S T R A T I O N
Examining the role for passenger rail
• Comprehensive investment plan for the Northeast Corridor
• Long-term vision, incremental implementation
• Integrated approach to corridor-wide environmental and
service planning
• Extensive stakeholder, agency, and public involvement
10
Purpose: upgrade aging infrastructure and improve the reliability, capacity, connectivity, performance, and resiliency of passenger rail service on the NEC for both intercity and regional trips, while promoting environmental sustainability and economic growth.
Purpose and Need
Aging Infrastructure
Connectivity Capacity Resiliency
Sustainability
Economic Growth
Performance
Key Needs:
5/22/2017
FRA – Office of Railroad Policy and Development
Moving America Forward
F E D E R A L R A I L R O A D A D M I N I S T R A T I O N
Our approach to NEC FUTURE
Close agency coordination
• CEQ pilot partnership
• Established early partnership with resource
and regulatory agencies
• Regular and continual coordination since
2012 to facilitate future compliance and
permitting
Public outreach at every step
• Dialogues, open houses, public meetings,
comment periods, webinars, email list
Structured, guided decision-making
5/22/2017
FRA – Office of Railroad Policy and Development
Moving America Forward
F E D E R A L R A I L R O A D A D M I N I S T R A T I O N
Public involvement throughout process Public & Agency Scoping 2000 + comments
Agency & Stakeholder Coordination Public workshops
Market Analysis Review RR Capital Plans
Ridership Model Service & Operations Modeling Initial Environmental Analysis
98 Initial
Concepts
15 Preliminary Alternatives
3 Alternatives (Tier 1 DEIS)
Stakeholder & Public Feedback
Selected Alternative
(ROD)
3-Month Comment Period 11 public hearings, 8000 + comments
Preferred Alternative
(Tier 1 FEIS)
Environmental Analysis Review of Benefits, Impacts & Costs
Technical analysis
Service & Operations Modeling
5/22/2017
FRA – Office of Railroad Policy and Development
Moving America Forward
F E D E R A L R A I L R O A D A D M I N I S T R A T I O N
Structured decision-making
Preferred Alternative
FRA Policy Objectives
Stakeholder and Public Comments
Tier 1 Draft EIS Evaluation
• Technical evaluation: What does the
evaluation of the Alternatives show? What are
impacts and benefits?
• Policy: How well do the Alternatives address
USDOT and FRA goals?
• Comments: What did we hear from the public
about the Alternatives? What do stakeholders
want from NEC FUTURE’s outcomes?
A blend and balancing act between three distinct inputs
5/22/2017
FRA – Office of Railroad Policy and Development
Moving America Forward
F E D E R A L R A I L R O A D A D M I N I S T R A T I O N
Process Benefits
Enables subsequent work
• Project-level studies able to use guidance and data from NEC FUTURE as inputs
• Stakeholders identified, aware and involved
• Projects advance incrementally, but consistent with an overall vision
Tier I NEPA One-Year
Implementation Plan
Five-Year Capital
Investment Plan
Corridor-wide Service
Planning
Long-term Medium-term Short-term
NEC FUTURE NEC Commission
Connects to NEC Commission’s collaborative planning process
5/22/2017
FRA – Office of Railroad Policy and Development
Moving America Forward
F E D E R A L R A I L R O A D A D M I N I S T R A T I O N
Recap
Mutual benefits of NEC Commission
Collaborative planning at several time scales
Value in long-term planning
PARTNERSHIP PLANNING ON THE NORTHEAST CORRIDOR
Alex Flemming, AICP Infrastructure Planning Manager Amtrak Planning, Technology and Public Affairs
May 9, 2017 APA National Conference New York City
Capital Cost Allocation on the Northeast Corridor
Session # 9107305
2 | Amtrak Planning, Technology and Public Affairs
Capital Cost Allocation on the Northeast Corridor A Look Back – Amtrak and the NEC
• Amtrak formed as the nation’s intercity rail operator in May, 1971 - Rail Passenger Service Act (1970).
• Current ownership of the NEC stems from the bankruptcy of the Penn Central Transportation Company (Penn Central) in 1970
• Railroad Revitalization and Regulatory Reform Act of 1976 provided funding for Amtrak to purchase, among other assets, NEC territory and facilities that had not already been acquired.
3 | Amtrak Planning, Technology and Public Affairs
Capital Cost Allocation on the Northeast Corridor NEC – a system of components
4 | Amtrak Planning, Technology and Public Affairs
Capital Cost Allocation on the Northeast Corridor Aging Basic Infrastructural Assets
5 | Amtrak Planning, Technology and Public Affairs
Capital Cost Allocation on the Northeast Corridor A Legacy of “Avoidable Costs”
Ex-Parte 417 (1983) ICC determined that the appropriate compensation standard was based on avoidable, or incremental, costs. Avoidable cost standard premised on a dominant user (Amtrak) and a minority user(s) – commuter rail operator - and assigns to the minority user only those costs that could be directly avoided “but for” the existence of the minority user.
6 | Amtrak Planning, Technology and Public Affairs
• Ex-Parte 417 meant that Amtrak services were cross- subsidizing Commuter services.
By many measures – especially territorially – Amtrak is not the dominant user.
Commuter services have grown far more significantly from 1983 onwards.
• State and Commuter Agencies did contribute to capital projects during this period.
However, contributions were largely ad hoc, negotiated and voluntarily.
Capital Cost Allocation on the Northeast Corridor
An Inequitable Situation…
7 | Amtrak Planning, Technology and Public Affairs
Capital Cost Allocation on the Northeast Corridor NEC WEEKLY TRAIN COUNTS (1975-2016)
8 | Amtrak Planning, Technology and Public Affairs
Capital Cost Allocation on the Northeast Corridor PRIIA (2008) – Section 212 & Cost Allocation Policy
Northeast Corridor Commuter and Intercity Rail Cost Allocation Policy – effective October 1, 2015
Framework for a fiscally sustainable future
• Standardized allocation formula for use of the Northeast Corridor
• No cross-subsidization between intercity and commuter services.
• Consistency and transparency
across all owners and operators
9 | Amtrak Planning, Technology and Public Affairs
Capital Cost Allocation on the Northeast Corridor Equity – the Base Capital Charge (BCC)
1. Divide territory into Six Capital Segments 2. For each Capital Segment: Calculate annual Normalized Replacement (NR) need 3. Baseline Capital Charge (BCC): Allocate annual replacement need among operators by relative use
New Haven Line CT
Keystone Line
Empire Conn.
NHL NY
Amtrak owned / maintained NEC Spine
Annual Cost of Replacing Existing Basic
Infrastructural Assets
User A Share of Use User B User C User D
Shares of Use Based on Operating Statistics
User A BCC User B BCC
User C BCC
User D BCC
Springfield Line
10 | Amtrak Planning, Technology and Public Affairs
Capital Cost Allocation on the Northeast Corridor Transparency – through Collaborative Planning & Reporting
NEC One-Year Implementation Plan (OYIP) • One-year projection of capital spending so operators can
have knowledge of projects occurring in upcoming year.
• Each Operator’s BCC can generally only be spent in their territory, and on assets they use.
Project Delivery Reporting • Quarterly Reporting against One-Year Implementation Plan
(OYIP).
• Objective is to anticipate, inform and account for variances from the OYIP.
• User BCCs allocations to individual projects are disclosed in the End-of-Year Report.
11 | Amtrak Planning, Technology and Public Affairs
• Territorial application of User BCCs is sometimes hard to achieve.
Requires overhaul on how Amtrak does Capital Planning and Reporting.
• Major Backlog & Improvement Projects – outside of BCC Program.
Each requires a individual equitable cost sharing agreement.
Permanent Methods are currently being developed by NECC Committee.
Capital Cost Allocation on the Northeast Corridor Lot of progress … but lots left to do.
12 | Amtrak Planning, Technology and Public Affairs
Capital Cost Allocation on the Northeast Corridor Still a Need for Federal Role & Investment
• The backlog needs – $38 billion – of the NEC are far beyond the ability of Amtrak and State / Commuter Railroads to fund independently.
• FAST Act (December,
2015) - Amtrak included in the Federal Surface Transportation Act for the first time
• NEC Future – Federal Government ultimately has the mandate to decide the long-term future of the NEC.
13 | Amtrak Planning, Technology and Public Affairs
Capital Cost Allocation on the Northeast Corridor A Solid Foundation for Capital Planning & Investment
Conclusions Like the planning profession – PRIIA 212, and the resultant
NEC Commission Cost Allocation Policy are founded on the fundamental principles: Equity and Transparency.
Partnership and collaboration are key to success.
Greater commitment from all NEC partners inevitably leads a greater role for all in decision-making.
14 | Amtrak Planning, Technology and Public Affairs
THANK YOU FOR YOUR TIME