Goal:
Create an environmentally friendly transportation system.
Objectives:
The Boston Region Metropolitan Planning Organization (MPO) acknowledges that greenhouse gas emissions (GHGs) contribute to climate change. If climate trends continue as projected, the conditions in the Boston region will include a rise in sea level coupled with storm-induced flooding and warmer temperatures that would affect the region’s infrastructure, economy, human health, and natural resources.
The Commonwealth has made significant progress toward improving air quality in the region. The Boston Region MPO is meeting the national ambient air quality standards (NAAQS) for ozone, particulate matter (PM), and carbon monoxide (CO). However, the MPO is required to continue monitoring its transportation activities to ensure that the region is continuing to meet the NAAQS, in particular, for ozone in the MPO area and CO for the City of Waltham. Continued vigilance is needed to keep emissions of these pollutants at acceptable levels. In addition, transportation infrastructure can negatively affect land use patterns and environmental resources. The MPO must continue to consult with the appropriate environmental agencies regarding transportation initiatives.
Clean air and sustainable community issues related to the MPO’s long range transportation planning include reducing greenhouse gas and other transportation-related emissions, minimizing the negative environmental impacts of the transportation system, and supporting land use policies consistent with smart, healthy, and resilient growth. With the acknowledgement that GHGs contribute to climate change, there are two aspects of climate change planning that the Boston Region MPO can move forward with—mitigation and adaption.
Climate change mitigation generally involves reductions in human (anthropogenic) emissions of greenhouse gases. Mitigation is addressed under the Clean Air and Sustainable Communities goal area. Adaptation is a direct response to climate change to reduce the vulnerability of systems, in this case, the transportation system, to a relatively sudden change to offset the effects of global warming. The changes can include large-scale changes, such as building infrastructure to protect against sea-level rise or improving the quality of road surfaces to withstand hotter temperatures. Adaptation is addressed under the System Preservation goal area.
Massachusetts is responding to the challenge of climate change by taking action to reduce the GHGs produced by the state—including those generated by the transportation sector. To that end, Massachusetts passed its Global Warming Solutions Act (GWSA), which requires reductions of GHGs by 2020, and further reductions by 2050, relative to 1990 baseline conditions. Reducing the use of single-occupant vehicles would scale back emissions of GHGs and other pollutants. Electrification of vehicles can also help reduce transportation-related emissions. The Boston Region MPO helps to implement the GWSA by analyzing proposed transportation projects for their impacts on GHG emissions.
The MPO also analyzes and monitors the presence of other air quality pollutants—volatile organic compounds (VOC), nitrogen oxides (NOx), CO, and PM2.5 and PM10—from transportation in the region. In 2012, the MPO region was classified as attainment for ozone (formed from VOC and NOx emissions). However, a recent court ruling requires that the MPO region continue to perform conformity determinations on new Long-Range Transportation Plans (LRTP) to ensure that it is continuing to meet the NAAQS. The Boston Region MPO is in attainment with the PM standards, but remains in maintenance for CO for the City of Waltham.
Contributing to this improved air quality status is the MPO’s attention to the State Implementation Plan Commitments from the Central Artery/Third Harbor Tunnel project, and other measures and projects funded in the LRTP and Transportation Improvement Program (TIP) to reduce congestion and improve transit and active modes of transportation. Although the MPO area is in attainment for certain pollutants and maintenance for others for specific air quality standards, the goal is to continue to reduce emissions of all pollutants. In addition, to support reductions in emissions from transportation, the United States Department of Transportation (US DOT) has required states and MPOs to implement a performance-based approach to making investments to reduce emissions, which includes setting performance targets and monitoring outcomes.
The MPO consults with agencies responsible for land management, natural resources, historic preservation, and environmental protection and conservation as related to transportation initiatives. Natural, environmental, and historic resources were mapped for the Boston region using information from the Commonwealth’s Bureau of Geographic Information Systems (MassGIS).
In addition, the MPO considers environmental impacts that stem from transportation projects, including areas of critical environmental concern, special flood hazard areas, wetlands, water supply, protected open space, endangered species, and brownfield and superfund sites when considering and evaluating projects for funding. In the Boston region, environmental reviews for projects are conducted by the proponent transportation agency or municipality. The Massachusetts Department of Transportation (MassDOT) takes the lead on environmental reviews when each of the projects is in the design phase and prior to being funded for construction by the MPO. The MPO’s land use agency, the Metropolitan Area Planning Council (MAPC), also submits comment letters on environmental documents for projects considered to be of significant regional impact. They also provide technical assistance to the member municipalities on other environmental issues including stormwater management, hazard mitigation planning, and climate mitigation and adaptation planning. The MPO supports land use policies that are consistent with smart, healthy, and resilient growth.
As mentioned above, Clean Air and Sustainable Communities’ needs fall into three categories: reducing greenhouse gas and other transportation related emissions; minimizing the negative environmental impacts of the transportation system; and supporting land use policies consistent with smart, healthy, and resilient growth.
The reduction of GHG emissions is a priority for the MPO, not only to help implement the Commonwealth’s GWSA, but to help alleviate impacts from climate change including flooding, sea-level rise, and warmer temperatures. The MPO should continue to evaluate and monitor carbon dioxide (CO2) emissions from projects and programs funded through the LRTP and TIP. The MPO monitors CO2 because it is the most significant GHG in the atmosphere. The MPO uses information from the Massachusetts Department of Energy Resources’ Green Communities program to evaluate projects and programs for the LRTP and TIP, and MAPC works with municipalities on their Local Energy Action, Net Zero Communities 101, Energy-Use Baselines, and GHG Inventories programs. Continued updates of the MPO’s Vehicle-Miles Traveled (VMT) and Emission Browser and All-Hazards Planning Application can provide additional information to municipalities that are creating GHG baseline information and GHG inventories.
Although the Boston region is meeting the air quality standards for most air pollutants, it is important to ensure that transportation projects funded by the MPO continue to help to reduce VMT, which in turn will continue to reduce air pollution in the region. The MPO should continue to evaluate and monitor VOCs and NOx—which are precursors to ozone—PM, and CO emissions from projects and programs funded through the LRTP and TIP. Updates to the MPO’s VMT and Emission Browser will allow municipalities to monitor their transportation-related emissions of these pollutants as well.
The MPO does not engage in environmental planning, rather it relies on information from MassDOT, the Massachusetts Bay Transportation Authority (MBTA), and other planning agencies when evaluating projects and programs to be funded in the LRTP and TIP. MassDOT and the MBTA take the lead on environmental reviews during project design, and MAPC provides comments on environmental documents for regionally significant projects. Other sources of information used by the MPO include Massachusetts Geographic Information System (GIS) mapping, Massachusetts Department of Energy Resources’ Green Communities program, and MAPC’s stormwater management and hazard mitigation plans. The MPO should continue to coordinate with these agencies during its transportation planning activities.
Table 7-1 summarizes MPO staff-identified key findings about clean air and sustainable communities’ needs through data analysis and public input. It also includes staff recommendations for addressing each need. More details on each of the recommendations are provided in Chapter 10 – Recommendations to Address Transportation Needs in the Region. The MPO board should consider these findings when prioritizing programs and projects to receive funding in the LRTP and TIP, and when selecting studies and activities for inclusion in the Unified Planning Work Program (UPWP).
Table 7-1
Clean Air and Sustainable Communities’ Needs in the Boston Region Identified through Data Analysis and Public Outreach and Recommendations to Address Needs
| Emphasis Area |
Issue |
Needs |
Recommendations to |
|---|---|---|---|
Greenhouse Gas |
Reduce CO2 emissions |
Reduce CO2 emissions from MPO-funded transportation projects and programs to help meet the requirements of the GWSA, particularly projects that help to reduce VMT |
Existing Programs Intersection Improvement Program Complete Streets Program Bicycle and Pedestrian Program Major Infrastructure Program Bottleneck Program Community Transportation Program Proposed Programs Enhanced Park-and-Ride Program Dedicated Bus Lane Program Interchange Modernization Program Coordinating Car Sharing and Transit Existing Studies Addressing Safety, Mobility, and Access on Subregional Priority Roadways (FFY 2019 UPWP) Low-Cost Improvements to Express Highway Bottlenecks (FFY 2019 UPWP) Reverse-Commute Areas Analyses (FFY 2019 UPWP) Pedestrian Report Card Assessment Dashboard (FFY 2019 UPWP) Proposed Studies Congestion Pricing Research Safety and Operations at Selected Intersections |
Greenhouse Gas |
Reduce CO2 emissions |
Prioritize transportation projects and programs to assist municipalities in meeting or maintaining their Green Communities certification |
Existing MPO Action Continue to use the MPO’s evaluation criteria to assess projects seeking funding from the MPO
|
Greenhouse Gas |
Reduce CO2 emissions |
Provide data and assistance to municipalities in developing their GHG inventories and energy reduction plans |
Existing MPO Action Continue to provide CO2 emissions data as part of the MPO’s Vehicle-Miles Traveled and Emissions Data Browser
|
Air Pollution |
Reduce VOC, NOx, CO, and PM emissions |
Reduce VOC, NOx, CO, and PM emissions from MPO-funded transportation projects and programs, particularly those that help to reduce VMT, to help maintain the air quality standards in the region |
Existing Programs Intersection Improvement Program Complete Streets Program Bicycle and Pedestrian Program Major Infrastructure Program Bottleneck Program Community Transportation Program Proposed Programs Enhanced Park-and-Ride Program Dedicated Bus Lane Program Interchange Modernization Program Coordinating Car Sharing and Transit Existing Studies Addressing Safety, Mobility, and Access on Subregional Priority Roadways (FFY 2019 UPWP) Low-Cost Improvements to Express Highway Bottlenecks (FFY 2019 UPWP) Reverse-Commute Areas Analyses (FFY 2019 UPWP) Pedestrian Report Card Assessment Dashboard (FFY 2019 UPWP) Proposed Studies Congestion Pricing Research Safety and Operations at Selected Intersections |
Environment |
Protect the environment—wetlands, cultural resources, open space, and wildlife |
Identify projects and programs that can meet criteria established to protect wetlands, cultural resources, open space, and wildlife |
Existing MPO Action Continue to use the MPO’s evaluation criteria to assess projects seeking funding in the MPO’s LRTP and TIP
|
Environment |
Protect the environment—water quality |
Ensure that infrastructure to reduce storm water pollution is incorporated in project design |
Existing MPO Action Continue to use the MPO’s evaluation criteria to assess projects seeking funding in the MPO’s LRTP and TIP |
Environment |
Protect the environment—hazard mitigation |
Ensure that infrastructure to reduce impacts from natural hazard events (flooding, winter storms, etc.) is incorporated in project design |
Existing MPO Action Continue to use the MPO’s evaluation criteria to assess projects seeking funding in the MPO’s LRTP and TIP
|
CO = carbon monoxide. CO2 = carbon dioxide. GHG = greenhouse gas emission. GWSA = Global Warming Solutions Act.
FFY = federal fiscal year. NOx = nitrogen oxides. PM = particulate matter. UPWP = Unified Planning Work Program.
VMT = vehicle-miles traveled. VOC = volatile organic compound.
Source: Boston Region MPO.
This section presents the research and analysis MPO staff conducted to understand transportation clean air and sustainable communities’ needs in the Boston region, which have been summarized in the previous section. Supporting information that MPO staff used to understand clean air and sustainable communities’ needs is included in the Appendices of this Needs Assessment.
This section also includes a summary of input staff gathered from stakeholders and the public about clean air and sustainable communities’ needs and proposed solutions to meet those needs. Staff considered this input when developing recommendations to achieve the MPO’s clean air and sustainable communities’ goals and objectives.
The MPO continues to monitor the estimated or projected levels of pollutants (VOC, NOx, CO, PM, and CO2) at both the regional and project level. The MPO uses this information to guide planning and programming in its LRTP, TIP, studies or individual projects outlined in the UPWP, and project work for various transportation agencies. In both the LRTP and TIP project selection processes, the MPO reviews and rates projects on how well they meet criteria established to address climate change and reduce air pollution. Many of the projects funded by the MPO that reduce transportation related emissions are funded through the Congestion Mitigation and Air Quality (CMAQ) federal funding program in the TIP. The MPO reports CO2 emissions of its programmed projects and programs to MassDOT, who in turn reports to the Executive Office of Energy and Environmental Affairs on its implementation of the GWSA.
In addition, many of the objectives established under the MPO’s Capacity Management and Mobility goal help the MPO to meet the Clean Air and Sustainable Communities goal. The Capacity Management and Mobility goal encourages programs that help reduce VMT, which in turn helps to reduce emissions of VOC, NOx, CO, CO2, and PM.
In December 2018, a report from the Commission on the Future of Transportation in the Commonwealth, Choices for Stewardship: Recommendations to Meet the Transportation Future, was released which identified recommendations to reduce GHG emissions from the transportation sector. One recommendation was specific to transportation electrification—to establish a goal that all new cars, light-duty trucks, and buses sold in Massachusetts be electric by 2040. For its part, the MPO can work with the state agencies to ensure that the appropriate infrastructure is available to power electric vehicles in the future.
The MPO consults with agencies responsible for environmental protection and conservation as related to transportation initiatives. The Massachusetts Department of Energy Resources (DOER) and MAPC provide resources that are used by the MPO in its project selection and transportation planning activities.
DOER administers a “Green Communities” program that helps municipalities to create a clean, affordable and resilient energy future. DOER offers cities and towns a range of energy initiatives and services to reduce GHG and to become clean energy leaders. To become certified as a Green Community, a community must
MAPC works with their member municipalities to attain this Green Communities certification. One of the MPO’s evaluation criteria for funding in the LRTP and TIP is if the project is located in a certified Green Community. To date, there are 69 certified Green Communities in the Boston Region MPO area.
MAPC also provides technical assistance to municipalities to help reduce GHG emissions. These include
To support reductions in emissions from transportation, the US DOT requires states and MPOs to implement a performance-based approach to making investments to reduce emissions, including setting performance targets and monitoring outcomes. There is one performance measure associated with emission reductions—total emissions reductions for applicable pollutants and precursors for CMAQ-funded projects in designated nonattainment and maintenance areas. Since the MPO is classified as maintenance for CO and must continue to do conformity determinations for ozone, the MPO is required to establish targets for this measure.
Table 7-2 identifies the federally required CMAQ emissions reduction measure, which is the total emissions reduction for applicable pollutants and precursors for CMAQ-funded projects in designated nonattainment and maintenance areas. The Federal Highway Administration (FHWA) requires states and MPOs subject to these CMAQ performance management requirements to establish a baseline for this measure by identifying emissions reductions associated with any CMAQ-funded projects programmed in air quality nonattainment or maintenance areas between FFY 2014 and FFY 2017. These states and MPOs were also required to set two-year and four-year targets for the emissions reductions they expect from CMAQ-funded projects programmed in nonattainment or maintenance areas.
In the Boston Region MPO’s case, this CMAQ emissions performance measure would capture the anticipated CO emission reductions from any CMAQ-funded projects that the MPO has programmed specifically in the CO maintenance area in Waltham.1 Table 7-2 also shows the Boston Region MPO’s baseline and target values for this measure. Neither the MPO nor MassDOT programmed any CMAQ-funded projects in Waltham during FFYs 2014 to 2017. At the time of target setting, the MPO’s TIP did not reflect any CMAQ-funded projects programmed in Waltham from FFY 2018 to 2021 either.
Table 7-2
CMAQ Emissions Reduction Baseline and Targets for the Boston Region MPO
Performance Measure |
FFYs 2014–17 Measure Value (Baseline) |
Two-Year Target |
Four-Year Target |
Daily kilograms of CO emissions reduction from CMAQ projects in Boston region nonattainment or maintenance areas |
0 |
0 |
0 |
CMAQ = Congestion Mitigation and Air Quality. CO = carbon monoxide. FFY = federal fiscal year.
Source: Boston Region MPO.
One of the MPO’s objectives is to minimize negative environmental impacts of the transportation system. The MPO addresses environmental impacts through its evaluation criteria, rating projects on how well they address impacts in these areas prior to programming projects in the LRTP and TIP. MassDOT takes the lead on environmental reviews when projects are in the design phase and prior to being funded by the MPO in its LRTP and TIP. MassDOT addresses the following environmental issues which are also considered in the MPO’s evaluation criteria.
The MPO also considers the following environmental issues in its planning work; the information listed below can be accessed through the MPO’s LRTP Needs Assessment tool. Users are directed to the Massachusetts GIS website to view maps of these areas.2
In addition, the MPO’s All-Hazards Planning Application shows the region’s transportation network in relation to natural hazard zones. It works in conjunction with the MPO’s database of TIP projects so that it can be used to determine if proposed projects are located in areas prone to flooding or at risk of seawater inundation from hurricane storm surges, or in the long term, sea level rise, which may be a result of climate change. Transportation facilities in such hazard zones might benefit from flood protection measures, such as enhanced drainage systems, or adaptations for sea level rise.
MAPC provides technical assistance to municipalities to develop hazard mitigation plans. Hazard Mitigation planning is a proactive effort to identify actions that can reduce the impacts from natural hazard events, such as hurricanes, tornadoes, winter storms, and earthquakes. For the cities and towns in the Boston Metropolitan region, hazard mitigation planning tends to focus on flooding, the most common natural hazard to impact municipalities. The Federal Disaster Mitigation Act of 2000 requires that all municipalities that wish to be eligible to receive Federal Emergency Management Agency (FEMA) funding for hazard mitigation grants adopt a local multi-hazard mitigation plan and update this plan every five years. MAPC, with support from the FEMA Pre-Disaster Mitigation Program, provides assistance to cities and towns to develop and update their local Hazard Mitigation Plans. The plans and updates produced through this program are designed to individually meet the requirements of the Disaster Mitigation Act for each municipality and provide a resource for other local and regional planning efforts (e.g., Master Plans, Climate Change planning, Capital Improvements Programs, etc.). Similarly, MassDOT has its own Hazard Mitigation Plan, which is currently being updated.
MAPC also provides technical assistance to member municipalities on meeting federal requirements for stormwater management. Stormwater has become an issue in regards to water quality, which can be adversely impacted by chemical and biological materials if not directed to natural or man-made facilities designed to treat it. Runoff from roadways is of particular concern. The Environmental Protection Agency (EPA) requires that all large municipalities advance their Stormwater Master Plans and obtain a Municipal Separate Storm Sewer Systems general permit. Although these permits have been in place since 2003, the requirements have become more stringent as of July 1, 2018. The MPO can help to promote stormwater management by awarding points to highway projects that implement procedures for reducing stormwater pollution loads from runoff.
Environmental impacts of projects will continue to be reviewed and rated at the individual project level on how well they meet the MPO’s criteria to protect the environment as they are submitted for funding consideration in the LRTP and TIP. Although a qualitative evaluation is done for projects in the conceptual design phase using the above-mentioned information, a more detailed evaluation is also possible for projects that are further along in design.
Land use decisions in Massachusetts are controlled directly by local municipalities through zoning. At the regional level, MAPC is the regional planning agency that represents the cities and towns in the metropolitan Boston area and the Boston Region MPO. MAPC created MetroFuture in 2008, a plan to make a “greater” Boston region—to better the lives of the people who live and work in metropolitan Boston, now and in the future. Some of MetroFuture’s implementation strategies are to improve city life, conserve natural resources, and support healthy families.3 The MPO adopted this plan as its land use vision for the Boston Region MPO area. The MPO will continue to work with MAPC and municipalities to support these strategies and those that will be adopted as part of the new land use plan, MetroCommon 2050.
The Choices for Stewardship: Recommendations to Meet the Transportation Future report included recommendations to coordinate and modernize land use, economic development, housing, and transportation policies to support municipalities throughout the Commonwealth. The MPO can work with municipalities and state agencies to implement these recommendations.
During fall 2017 and winter 2018, MPO staff collected feedback on transportation issues, needs, and opportunities from municipal planners and officials, transportation advocates, members of the general public, and other stakeholders. During this outreach process, 46 respondents commented on three different themes related to Clean Air and Sustainable Communities including greenhouse gas reduction, health and air quality, and noise. The following section is a summary of those comments by theme.
Respondents stated it is important to lessen the transportation system’s contribution to global climate change by reducing carbon emissions. Respondents indicated a need to dramatically decrease GHG emissions from the transportation sector, which is the largest source of emissions. They also encouraged planning for a sustainable, carbon-neutral transportation system.
Respondents worried about the impact of storms and flooding on the region’s aging transportation infrastructure, including roads, bridges, and rapid transit lines. Additionally, some respondents noted the climate impacts of transportation network companies (TNCs), which have increased single-occupancy trips. Others worried that autonomous vehicles (AVs) could have a similar climate impact, especially if AVs entering the market are not electric and not shared.
Respondents proposed solutions which focused on shifting mode share from single-occupancy vehicles into carbon-neutral forms of transportation (especially for local trips) and easing congestion on roadways. To accomplish this, respondents proposed funding improvements to public transit and infrastructure for people walking and biking. Respondents also encouraged electrification of the transit system.
Respondents felt that the transportation system should support human health. This interest was highlighted by municipal officials, transportation advocates, Councils on Aging employees, and residents. Health concerns centered on pollution from congested roadways (especially at rush hour times) and the lack of active transportation options, which contributes to increased obesity. These concerns were noted as particularly prevalent in lower-income neighborhoods and communities of color. Additionally, respondents worried that TNCs have worsened congestion and increased pollution, due to increases in single-occupancy trips.
Respondents noted that noise can be a quality of life issue, particularly in areas neighboring rail lines. There is a desire for quiet zones in Ashland and Framingham. Respondents also felt that when additional commuter rail service is added, it should end before suburban communities (like Needham, for instance) to avoid noise concerns.
Respondents also offered proposed solutions to reduce greenhouse gas emissions and noise, as well as improving air quality including:
Many of the proposed solutions above will also address the MPO’s Capacity Management and Mobility goal.
Since the MPO last updated its Needs Assessment in 2014, there have been several planning and policy changes that affect the content of this chapter.
MPO staff has made several updates to this chapter, based on planning and policy changes, data availability, and other factors. Staff has also updated the VMT and Emissions Data Browser application4 with new demographic projections developed for Destination 2040, the travel model results of vehicle-miles of travel, and the resulting transportation emissions.
1 FHWA assesses the CMAQ performance management requirements that apply to states and MPOs every two years. FHWA conducted its most recent assessment in August 2017, at which time the MPO was only subject to emissions performance management requirements for its CO maintenance area in Waltham. FHWA will conduct its next assessment by October 1, 2019, after which time the MPO may be subject to requirements for other pollutants or precursors.
2 To view maps of these areas, visit:https://www.mass.gov/service-details/massgis-data-layers.
3 In 2019 and 2020, MAPC will update the regional land use plan, and this new plan, MetroCommon 2050 will be based on new development trends, housing needs, regional equity goals, and climate change impacts. MetroCommon 2050 will not be completed until after the adoption of Destination 2040, however, the demographic projections and land use assumptions that will be used in MetroCommon 2050 and in the Destination 2040 LRTP and Needs Assessment have been developed.
4 To view the application, visit: http://www.ctps.org/geoserver/www/apps/vmtApp/index.html.
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