Section 1.0 Introduction
The Office of Freight Management and Operations within the Operations Core Business Unit (CBU) of the Federal Highway Administration (FHWA) was created in January 1999. The Office focuses on freight issues within FHWA to fulfill both the U.S. DOT and FHWA strategic plans to " …advance America's economic growth and competitiveness…". The Operations CBU is charged with "optimizing performance" of the transportation network. A "roadmap" was designed for the Freight Office to provide a structure for achieving the goals and objectives of the agency regarding freight transportation. The "roadmap" outlines six cross cutting issues in freight transportation which are: environment, planning, finance, economic benefits, freight performance measures, and intermodal freight analysis/decision framework. Each of the six items is important to understanding and developing a freight transportation system.
Environmental issues, relating to intermodal freight transportation facilities are the focus of this study. The purpose is three fold: 1) to develop an understanding of how these facilities affect environmental resources, 2) how, and what, environmental resources affect the development of intermodal freight facilities, and 3) understanding how projects are implemented given the environmental regulations and agency review process.
Consideration of environmental resources, both human and natural, is mandated by law where there is federal involvement in transportation improvements. This involvement can include permitting, loan guarantees, direct federal aid and other activities requiring a "federal action" and apply to public as well as private sector sponsors. State and local laws may also require the consideration of a variety of environmental resources before a transportation project can advance regardless of the sponsoring entity involved. The degree that environmental laws are understood, acknowledged, and complied with can affect project schedules, design, and costs.
This report identifies a number of environmental constraints affecting the development and expansion of intermodal freight facilities. These constraints include: facilities that enhance the movement of freight between modes, including rail yards with highway connections, ports with rail and highway connections, and airports with highway and rail connections. The report is one of several ongoing studies by the FHWA related to intermodal freight transportation. Selected intermodal projects are presented in this report that reflect environmental issues raised during project planning and advancement, and highlights where environmental issues:
- Provided a rationale for particular solutions;
- Affected Schedules;
- Affected costs (positively or negatively); or
- Affected the viability of a proposed action.
The sample of intermodal projects illustrates the environmental issues facing agencies, authorities, and private sector entities engaged in advancing freight transportation improvements.
The report includes evaluations of some of the causes of delays and cost increases (e.g., the agency review process, presence or absence of a structured approach to environmental analysis, and public involvement).
Definitions
An intermodal facility is a site where freight is conveyed from one mode of freight transportation to another. Examples include water/port to rail or highway movements, and truck/rail interfaces.
Intermodalism received national attention with the 1991 Intermodal Surface Transportation Efficiency Act (ISTEA). With new language under the Transportation Equity Act for the 21st Century (TEA-21), expenditures from federal sources for the development or improvement of intermodal freight facilities are likely to increase. A number of state initiatives have been undertaken, including legislation in California and Virginia, to facilitate private development of what had previously been thought of as public infrastructure. These federal, state, and private sector initiatives also hold the potential for raising environmental concerns related to freight transport.
Environmental Considerations in Planning Intermodal Facilities
Planning new or expanded intermodal facilities can require evaluating a broad range of potential environmental and related social impacts. Planning for federally aided facilities requires funding applications, and coordination and review among local, state, and federal transportation agencies as well as environmental review agencies. Under the implementing regulations for the National Environmental Policy Act (NEPA), a federal agency must prepare or oversee the preparation of an environmental impact statement (EIS) if the proposed action could result in a significant environmental impact. Federal agencies prepare or oversee the preparation of an environmental assessment (EA) to determine whether to prepare an EIS or a Finding of No Significant Impact (FONSI). NEPA requires sponsoring agencies to consult with other agencies, involve the public, and have a review period for EISs and some EAs. The environmental review process encompasses other federal regulations as well, including the National Historic Preservation Act, the Endangered Species Act, the Clean Water Act, Title VI of the Civil Rights Act, the Executive Order on Environmental Justice, and the Uniform Relocation and Assistance Act.
The attention paid to the environmental impacts of potential intermodal facilities is both an opportunity to advance many projects, and a potential source of delay and/or an obstacle to construction.
Environmental Issues as an Opportunity to Advance Intermodal Projects
The transportation industry has embraced intermodalism because it is efficient. That efficiency can produce substantial environmental benefits, and thus, can aid intermodal facility development. For example, facilities that help decrease congestion can reduce emissions of concern locally, regionally, nationally, and internationally. That emissions reduction qualifies such facilities for funding from the Congestion Mitigation and Air Quality (CMAQ) program of the U.S. Department of Transportation. Several intermodal facilities have taken advantage of that eligibility, and we profile one, in Waterville, Maine.
Environmental Impacts as a Potential Source of Delay and/or an Obstacle
The Process of identifying environmental resources and assessing the impacts of freight transportation facility projects on those resources can be a source of delay or an obstacle to a project in two ways. First, procedurally. Both federally and non-federally aided projects must comply with environmental regulations pertaining to wetlands, endangered species, local zoning processes, and construction permits. Agencies may encounter delays in the preparation of an EIS or EA when they cannot achieve internal agreement on the proposed action or on methodologies for characterizing specific resources and impacts. Such delays may occur even in the absence of substantial environmental concerns, although concerns clearly make a delay more likely. Because agency consultation requires time, promptly initiating consultation is important and can minimize adverse impacts to a project schedule. Although proper integration of environmental considerations into the planning process cannot ensure a smooth agency consultation and public involvement process, it greatly increases the likelihood. This approach can also produce benefits to the environment as well. Second, substantively. Environmental review may discover, quantify, or otherwise raise environmental impacts that are of serious concern. Issues, especially with noise and land use compatibility, may arise apart from any formal evaluation process.
Many environmental concerns can be addressed through avoidance of resources during planning and design, and in some cases project redesign can not only reduce impacts, but also add benefits. Whether a concern is raised and addressed early in the planning process often determines whether or not the concern delays (or ultimately prevents) the project and affects the cost. Not anticipating a concern and planning for it early in the planning stages can add months to a project schedule and possibly result in project cancellation. Effective planning includes early consideration of potential environmental issues while the project proponent is still in a position to alter the project design if necessary, and early consultation with the public and agencies having regulatory jurisdiction. Early consideration of potential environmental impacts improves the likelihood that impacts can be avoided, minimized, or mitigated and in the best case, environmental benefits can be produced.
Structure of the Report
Section 2 of this report addresses the methodology; Section 3 describes the results of the analysis; and Section 4 presents summary and observations. The appendices contain a list of intermodal projects considered for development as case studies, an intermodal facility descriptive matrix, selection and evaluation criteria, interview questions for selected projects, and further information on each of the selected intermodal projects.
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