PlaNYC: A Bold Transportation Initiative for
New York City
By Lori Samet Schwarz, Esq.
On April 22, 2007, Mayor Bloomberg unveiled his far reaching long-term plan for New York City, covering all phases of development through the year 2030. Purposely released just days after the Mayor’s Earth Day speech, the plan emphasizes a “green” theme throughout 127 separate initiatives. However, what makes this plan somewhat different, at least as it relates to transportation and infrastructure, is that Mayor Bloomberg has included a strategy for funding these much needed improvements. Under his proposal, the City would commit large sums directly to the effort and develop a new agency to fund transportation and infrastructure projects.Developed by the Mayor’s Office of Long- Term Planning & Sustainability, “PlaNYC: A Greener, Greater New York” has been in development for many months. However, rather than relying solely on governmentinitiated research and development, the Bloomberg Administration convened a wide variety of experts, including scientists, academics, environmentalists, energy and planning experts, business leaders, and even ordinary citizens. A website was also created that received more than 5,000 hits, resulting in some 3,000 ideas for the Mayor’s proposed plan. Incredibly ambitious on many fronts, PlaNYC has already created debate among politicians, special interest groups and ordinary citizens alike as many of the more controversial initiatives are considered.
In the opening page of the PlaNYC section devoted to transportation, the Bloomberg Administration pronounces that: “Transportation is the greatest single barrier to achieving our region’s growth potential.” PlaNYC identifies sixteen specific initiatives that address not only the concerns of residents of the five boroughs, but also suburban commuters in New York and New Jersey who battle lengthy commutes daily under less than ideal circumstances. The initiatives, which have been divided into six major themes, cover all forms of transportation, from roadways, bridges and tunnels to subway and commuter rail lines. They seek to streamline bus transportation and stops, and encourages alternative commutation by ferries and bicycles. In short, there is something in the PlaNYC transportation initiatives to reassure who travels in and around New York City on a daily basis that Mayor Bloomberg has heard their complaints.
Of course, critics of the transportation initiatives have also started to come forward to be heard. While the media debate centers around the controversial congestion pricing plan, which has already found critics ranging from Wednesday matinee theater-goers to freight companies to Governor Corzine of New Jersey, other groups have also started to criticize the Mayor’s plan. However, most of those complaints are from groups that do not believe that PlaNYC does enough to address the concerns of outlying areas of the boroughs that have long been neglected by City Hall. For example, while PlaNYC focuses on development of major new subway corridors (Second Avenue Subway) and commuter rail centers (East Side Access), meaningful expansion of rapid bus transportation is on a slow-moving path.
(1) Build and expand transportation infrastructure –
A primary focus of PlaNYC is to increase capacity on key congested commuter routes that will otherwise be pressed beyond their capacity by 2030. Projects under this umbrella include the Second Avenue Subway which, after two previous failed starts due to lack of funding, is finally underway. While the initial phase will serve the Upper East Side of Manhattan, if completed as planned, the line will run from 125th Street to the southern tip of Manhattan. Also contemplated is a third track on the Long Island Rail Road (“LIRR”) Main Line, which will enable the LIRR to run more trains and provide additional service to local stations in Queens. This additional track will also enable the LIRR to service the ever increasing number of “reverse commuters” – those who live in New York City and commute to jobs outside the City – which population has increased by 10% since 2000. Other projects include Access to the Region’s Core (ARC), which will create a second Trans- Hudson Express (THE) Tunnel for New Jersey Transit (“NJT”), doubling the number of trains that can run into Manhattan and eliminating the “two-zone” commute for many New Jersey residents by providing new direct service to Manhattan on certain lines. Also contemplated is a second dedicated Express Bus Lane to serve the many communities not on the NJT rail network.Other projects include East Side Access for LIRR commuters and Metro North Service to Penn Station, which will both eliminate “two-zone” commutes for many suburban riders and increase the number of trains to under-served areas of Queens and the Bronx, most notably Co-op City and Hunts Point. Also contemplated is a feasibility study to determine how to best make use of the 5.1 mile Staten Island North Shore Alignment. This abandoned rail-line linking St. George and the Ferry Terminal could provide either rail or dedicated bus service, giving Staten Island its first rapid transit service in two generations.
(2) Improve existing transit service –
Another focus of the plan is improvement of bus service throughout the five boroughs. While New York City has the highest bus ridership in the United States, it also has the slowest buses, with speeds across the City decreasing by 4% between 2002 and 2006 alone. While the Bloomberg Administration highlights the nominal capital expenditures and quick start up of bus service (as compared with rail service), critics charge that the proposed bus service upgrades are not extensive enough.Borrowing from a model in use in cities around the world, PlaNYC proposes implementation of a Bus Rapid Transit (“BRT”) which “uses dedicated bus lanes, fewer stops, timesaving technologies, and additional efficiency measures to make bus travel fast, reliable and effective.” The concept is to launch five BRT routes, one in each borough, over the next two years; however, a second BRT route in each borough is not likely to be fully implemented until 2014. These express-type buses will only stop every 10-15 blocks, and will include bus stops equipped with electronic message boards providing real-time updates on arrival times. Where possible, sidewalk extensions will be built to ease sidewalk pedestrian congestion and make for easier bus access. Also included in the bus initiatives will be the creation of or improvement to dedicated bus lines on the East River (Manhattan, Williamsburg and Queensboro) Bridges to make them a more attractive option for commuters.
The plan also addresses the problems created by running buses directly under existing elevated subway platforms in Brooklyn, Queens and the Bronx. The combination of increased sidewalk congestion and columns supporting overhead structures serve to snarl both pedestrian and automotive traffic and create safety hazards as people step into the street to look for approaching buses. Although the methods for alleviating these conditions were not specified in PlaNYC, a total of 66 sites in these three boroughs are slated for remedial measures; however, they will not be completed for another 12 to 14 years.
(3) Promote other sustainable modes –
PlaNYC contemplates not only expanding existing ferry service, but contracting for a new privately-operated ferry system along the East River that will connect developing areas of Brooklyn and Queens with Midtown and Lower Manhattan. Also under consideration is a method by which commuters will be able to use MetroCards for both ferry service and connecting bus/subway service so as not to be penalized for using the ferries.Further, PlaNYC includes a dramatic acceleration of the implementation of the City’s 1,800-mile bike lane master plan to encourage this emission-free, low cost method of commutation. While cycling is estimated to have increased 75% from 2000 to 2006, still less than 1% of New Yorkers commute to work by bicycle. By providing a safe means of travel, the Bloomberg Administration hopes to see a dramatic increase in that figure. Also included is continuing implementation of the CITYRACKS program which will install an additional 1200 on-street bicycle racks over the next two years.
(4) Improve traffic flow by reducing congestion –
Perhaps the most controversial aspect of PlaNYC is the proposed implementation of congestion pricing, a system that would charge drivers a fee for entering the Manhattan commercial business district during peak hours. The Bloomberg Administration cites to studies in other countries to show how such a plan has reduced traffic both inside and outside the congestion zone. This has resulted in speeding bus service, decreasing delivery times and reducing greenhouse emissions, with no material economic impact on the economy. However, not all New Yorkers are convinced. Since State legislation is required to enable the City to impose such a fee or to fine violators, implementation of congestion pricing, even as a pilot program, is far from assured.As proposed, passenger vehicles entering or leaving Manhattan below 86th Street during the business day (weekdays from 6 a.m. to 6 p.m.) would pay an $8 daily fee. Trucks would pay $21. Cars that drive only within the congestion zone would pay $4 and trucks would pay $5.50. The fee would not apply to vehicles traveling on the FDR Drive, the West Side Highway or West Street. Also exempted from such a fee would be emergency vehicles, taxis and for-hire vehicles (radio cars), and vehicles with handicapped license plates. Cars paying a toll to enter Manhattan would only pay the difference between the daily fee and the toll to prevent congestion on free bridges. Movement around the outside of the zone would not be charged. Payment of the congestion fee would be accomplished through E-Z Pass, which is currently utilized by some 70% of New Yorker area drivers (and a large percentage of drivers up and down the East Coast). For those without an E-Z Pass, cameras on light poles would take pictures of license plates and various payment options would be available.
According to PlaNYC, traffic within the zone would decrease by 6.3% and speeds are projected to increase by 7.2%. It is also anticipated that traffic congestion in the outlying boroughs, particularly those providing toll-free access to Manhattan, will decrease significantly. The Bloomberg Administration anticipates that only 1.4% of travelers are expected to forego traveling into Manhattan because of congestion pricing. Commuters looking to avoid the fee will avail themselves of other improved mass transit options. Of course, the real impetus behind congestion pricing is to provide a stream of funding for the other transit improvements outlined in the plan. As discussed in the last section of this article, every net dollar raised from the congestion fee would be earmarked for mass transit improvements. Based upon Bloomberg Administration projections, $400 million in net revenues would be realized in the first year alone.
(5) Achieve a state of good repair on our roads and transit system –
Another key goal of PlaNYC is to bring all of the City’s roads and transit systems into a state of good repair so as to avoid crippling delays to the system. In 1981, the MTA halted all expansion projects until the entire system could be brought into a state of good repair. Twenty-five years later, the MTA is still $15 billion away from achieving that goal, of which only $5.5 billion has a dedicated funding source. The Bloomberg proposal for a Sustainable Mobility and Regional Transportation (SMART) Financing Authority, funded in part through congestion pricing, is designed to close that gap. As proposed by the Bloomberg Administration, the SMART Authority would provide the MTA with a one-time grant to cover the unfunded requirements to finally achieve a full state of good repair, plus future funding for maintenance.A SMART grant paid out over 20 years would also be available to assist the City in reaching it goal of resurfacing 1,000 lane miles of road per year instead of the 800 miles that has been averaged over the last 15 years. With only 69.9% of City roads rated “good” or better, there is still much work to be done.
(6) Develop new funding sources –
A centerpiece of PlaNYC is the creation of an independent regional financing authority to evaluate transit proposals and ensure a steady stream of funding for projects undertaken by transportation agencies. As currently projected, there is a combined budget gap of $30.9 million for implementation of all proposed programming. The SMART Authority would rely both on dedicated funding commitments from existing sources and tap new sources of revenue to avoid abandonment of projects mid-stream.Based upon the premise that all regional transportation projects, even those solely within New York City, benefit both City and non-City residents, the Bloomberg Administration proposes a matching partnership between the City and the State. Subject to confirmation that the State will match these amounts, the City will commit $220 million in annual payments starting in 2008, rising to $275 million in 2012 and increasing at the growth rate of the City’s personal income tax thereafter. Additional funds would also come from congestion pricing, with projected revenues of almost $400 million in the first year of operation to over $900 million by 2030.
The SMART Authority would not undertake any transportation projects of its own. Regional, State and City transportation agencies would apply for funding for specific projects to be evaluated by a board of directors comprised of representatives from around the region, with an equal number of members selected by the City and the State. A professional staff would assist in analyzing funding requests, independently assessing regional transportation needs and developing financing structures for selected projects. However, any project selected must meet the following criteria: (i) expand or improve infrastructure within the region and provide either a direct or indirect service to New York City; (ii) have already received all required legislative, local and environmental approvals to begin; and (iii) already have in place 50% of the required funding so that any SMART Fund dollars would be used to match existing funding. As with congestion pricing, State legislation would be required for the creation and empowerment of such a funding authority.
While many of the PlaNYC transportation initiatives are already underway, cooperation between, and a sustained commitment by, the City and State will be required to bring Mayor Bloomberg’s vision to fruition.
