The Road to Reduced Carbon Emissions: New York State Transportation Advisory Panel
This is part three of an ongoing series where I provide an overview of the New York Climate Leadership and Community Protection Act (CLCPA) and its advisory panels. There are six different advisory panels focused on developing recommendations for the Climate Action Council to integrate into the overall Scoping Plan in order to increase New York State’s energy efficiency and reducing greenhouse gas emissions (GHG). In my previous blog post, I discussed the Energy Efficiency and Housing Advisory Panel. In this article, I focus on the Transportation Advisory Panel (TAP).
Objectives
As with all of the advisory panels, the Transportation Advisory Panel focused on developing recommendations that would help meet the overall CLCPA targets to reduce greenhouse gas emissions (40 percent emissions reductions from 1990 levels by 2030 and 85 percent emissions reductions by 2050), achieve 100 percent zero-carbon electricity by 2040, and direct at least 35 percent of the benefits from the recommendations to disadvantaged communities. The advisory panel was also encouraged to include climate adaptation, resilience considerations, and identify potential funding sources for their final recommendations.
Transportation in New York State
The transportation sector accounts for 20 percent of global carbon emissions. Because of the large share of emissions that come from transportation, reaching the CLCPA goals will require significant changes to transportation. On September 17, 2020, the Transportation Advisory Panel convened their very first meeting. E3 presented their research of potential pathways that New York State could follow to reach the CLCPA climate goals, starting with acknowledging how emissions from transportation play into the economywide emissions. The majority of transportation emissions are from gasoline and diesel used in on-road transport. The rest comes from diesel and jet fuel used in aviation, shipping, and rail (i.e., non-road transportation).
Naturally, emissions from on-road transportation are driven by vehicle ownership and driving patterns. As the population grows, the number of vehicles is also expected to grow. On top of that, vehicle-miles traveled (VMT) is projected to grow even more quickly. Economic growth impacts the growth of non-road transportation, as the demand for energy in aviation, shipping, rail, and ports increases as economic activity increases. Emissions and VMT can be reduced by fuel efficiency improvements, better/increased public transportation, urbanization, and shifting to other means of transportation (e.g., walking, biking, etc.), also known as mode shifting.
Beyond reducing emissions by using transportation less often, there are several key opportunities to decarbonize the transportation system:
Energy Efficiency and Conservation
Improving vehicle efficiency directly reduces emissions. Improved fuel economy can be achieved through increased Corporate Average Fuel Economy (CAFE) standards, the development of more efficient vehicles, and vehicle owners switching from internal combustion engines to electric vehicles (EVs). Additionally, changing the transportation system as a whole to reduce VMT also reduces emissions. This would include expanding public transportation, mode shifting, and designing urban spaces with transportation minimization in mind.
Switching to Low Carbon Fuels
Electrification, hydrogen, and carbon neutral bioenergy are alternatives to fossil fuels. Because of the varied nature of different forms of transportation, different fuel types can meet the needs of different markets. Light-duty vehicles, intra-city freight, short-haul freight, and port operations could more easily benefit from electrification, whereas long-haul freight and aviation have different energy requirements.
Decarbonizing Electricity Supply
As vehicles electrify, the indirect emissions from charging those vehicles must also be addressed. After all, the overall effect of electrifying vehicles is lessened if the electricity they use is generated from carbon-heavy sources.
Public Transit: Metro Transportation Authority (MTA)
The MTA is the largest transit system in the United States by fleet size, serving eight to nine million riders each weekday across a five-thousand square mile operating territory. While public transportation can still create emissions, choosing to take public transportation reduces emissions compared to driving a personal vehicle.
The MTA has implemented several initiatives to make its infrastructure more energy efficient. The MTA installed more energy efficient lighting, heating, and cooling systems and is utilizing hydrogen fuel cell and heat recovery units at the New Corona Car Maintenance Facility and Grand Avenue Bus Depot. Regenerative braking implemented by the Metro-North Railroad, Long Island Rail Road, and New Technologies subway cars feeds energy back into the third rail that would otherwise be lost as heat when the train is coming to a stop. Additionally, NYC Transit is experimenting with two kinds of aluminum third rails that could be more efficient than the current steel third rails, as aluminum is a better conductor of electricity. Because they are not as heavy, aluminum rails would also potentially be easier to handle, install, and replace than steel rails.
As part of their sustainability efforts, the MTA is also very focused on resiliency and adaptation. The damage from superstorm Sandy in 2012 highlighted how buildings and systems need to be strengthened to withstand climate change. MTA properties are designed to keep water out, minimize the damage if water does manage to enter the system, and be able to recover quickly in order to restore service following an extreme weather event.
Public Transit: Upstate/Downstate
The New York Upstate/Downstate transit system ranks seventh in the United States in terms of fleet size, with over three thousand transit vehicles. Many of the systems are planning to transition to battery-powered electric buses, but there are concerns regarding costs and budget. Ridership and passenger revenue are down 40–60 percent, and state and federal aid are needed to support operations. Revenue losses and future deficits may reduce service areas and frequencies, which could lead to customers shifting to personal vehicles instead, which would make it more challenging to meet the CLCPA goals.
Electrification
New York State has the eleventh most light-duty electric vehicles in the United States and has similar EV charger deployment as other states with a comparable proportion of light-duty EVs, such as Connecticut and Maryland. New York State currently has several EV incentivization programs, such as the Drive Clean Rebate Program, Truck Voucher Incentive Program, and various EV charging station initiatives. However, there are still barriers to EV growth and other vehicle electrification, as shared by Cadmus Group during the TAP meeting on November 3, 2020. The average cost of a new electric car is still approximately $19,000 greater than that of a new gas-powered car, a significant deterrent to new car buyers. Additionally, available EVs tend to be smaller than the consumer preference for larger models, and the relatively older housing stock in New York state requires homeowners to update their house’s electricity capacity to be able to support residential charging. In other areas, electrification is still at an early stage for medium- and heavy-duty vehicles, and there are significant barriers to non-road transportation electrification. For example, electric air travel is only predicted to be feasible for short distances in the next decade.
Hydrogen and Biofuels
Hydrogen and biofuels are alternatives for non-road and difficult to electrify transportation, such as heavy-duty freight vehicles. Freight trucks currently contribute to approximately 27 percent of on-road fuel consumption and GHG emissions globally, despite representing less than four percent of the on-road fleet, according to work conducted for the International Zero-Emission Vehicle Alliance. As global freight emissions are expected to increase substantially due to the projected growth in freight demand, zero-emissions freight vehicles could replace the primarily diesel-powered vehicles and reduce greenhouse gas emissions. In New York state, there are significant barriers to adopting hydrogen and biofuel powered vehicles, mostly because fueling infrastructure is underdeveloped. There are only 68 E85 (ethanol-gasoline fuel blend) stations and zero public hydrogen dispensers.
VMT Management and System Efficiency
Vehicle-miles travelled essentially refers to the demand side of transportation, which can be reduced in a number of ways:
- Reducing the trip distance traveled by promoting higher density and mixed-use developments
- Reducing the need to travel with options like video conferencing and other internet-based services
- Reducing non-productive vehicle trips by discouraging zero-occupancy trips and with better parking management systems
Likewise, on the supply side, transportation system efficiency can be increased by improving the fuel and emissions efficiency of shipping methods, reducing GHG emissions associated with a given VMT, and moving away from internal combustion engine vehicles.
New York City already serves as a case study for how land use and transportation options reduce VMT and emissions: the VMT per capita and emissions in New York City are already 40 percent lower than other parts of New York State, which are less dense and have fewer transportation options.
Recommendations
In order to address the complexities of the New York State transportation system, the advisory panel was broken down further into subgroups to be able to draft specific recommendations for the Climate Action Council. Each subgroup took care to highlight how their recommendations would also benefit disadvantaged communities, as climate justice and a just transition are important components of the CLCPA.
Electrification and Low Carbon Fuels/Renewables
- Transition to 100% zero-emission light-duty vehicle sales — Zero-emission vehicle (ZEV) sales can be incentivized in a number of ways, including sales regulations, rebates, consumer engagement activities, offering dealer incentives for franchise dealers, and supporting the expansion of charging infrastructure
- Transition to zero emission medium- and heavy-duty vehicles and non-road vehicles — There are high upfront costs for electric trucks, buses, and equipment, which can be offset with proper incentivization and rebates. Clean fuel regulations that support ZEV technology development and ZEV requirements for state fleets and other facility vehicles will also incentivize ZEV adoption and development.
Benefits: New jobs will be created to service and fuel ZEVs, install charging stations, and construct ZEVs and their components, so there is an opportunity for workforce development in disadvantaged communities. Transitioning to ZEVs will also improve local air quality, which will have a positive ripple effect in public health. In particular, diesel trucks and buses have a disproportionately negative effect on air quality, especially along major highways and areas that experience heavy industrial traffic, which often tend to be near disadvantaged communities.
Public Transportation
- Transportation Oriented Development — Incentivizing developments to be more public transportation friendly will make it easier for the community to access public transit. This requires changes in land use planning to integrate public transportation accessibility and disincentivize personal vehicle dependency.
- Improve convenience and connectivity — Increasing the number of destinations, service frequency and reliability, and the number of mobility options all make public transportation more accessible and integrated into the community, which will make travelers more likely to use it. New phone application technologies can also aid in accessibility by providing updated information and schedules for travelers.
- Modernize the fleet — Modernizing public transportation vehicles by investing in ZEVs and other potential low-emission vehicles, such as those that use hydrogen fuel cells or other renewable fuels, will reduce GHG emissions. Finance policies and funding need to be developed in order to support this strategy.
Benefits: Zero-emission bus fleets will reduce pollution levels and improve air quality, which will reduce incidences of asthma and other respiratory illnesses. A holistic approach to community development will make it easier for communities to integrate public transportation usage into their daily lives and will have economic benefits, as consumers will be able to connect more directly with retail, hospitality, and entertainment venues.
Smart Growth & System Optimization
- Support Transportation-Oriented Development that enables greater use of public transportation and other low-carbon modes of transportation — Local governments need to be encouraged to offer density bonuses for programs that improve the transportation system, such as those around transit, reduced parking requirements, and complete streets. Funding or a grant program could be used to incentivize developers to build according to Transportation Oriented Development zoning. Greater inter-governmental coordination and technical support could help local governments improve their planning and zoning processes.
- Expand availability of low-carbon transportation modes — Funding for bike, pedestrian, transit, and complete street projects needs to be incentivized and expanded. Local projects that establish low-emission transportation zones and business that provide low-carbon transportation options need to be supported.
- Increase Smart Mobility and connected and automated vehicle deployments — Policies, technologies, and investments that reduce congestion and increase safety will improve the transportation system efficiency. Partnerships between business, economic development, local planners, and public transportation officials need to be created and expanded. Connected, automated vehicles are still unproven, and intelligent transportation systems technology is still being developed.
Benefits: Expanding public transportation and integrating it into communities will benefit lower-income households, which spend a disproportionate amount of income and time commuting, and the communities should be engaged in the decision-making process to ensure that it meets their needs. Walkable communities promote greater physical activity and a healthier lifestyle. Likewise, safe and accessible outdoor spaces promote social interactions that generate positive mental health outcomes, especially for those that suffer from isolation, such as the elderly community.
Market-based Policies & Finance and Funding
- Clean Fuel Standard — A Clean Fuel Standard encourages electrification and also achieves emission reductions in the near-term during the electrification transition.
- Public and private approaches to electrification financing — Financial support for electrification will come from a combination of new and existing funding programs, including NY Green Bank financing, medium- and heavy-duty EV incentive programs, and grants for evaluation and feasibility studies. These studies need to be conducted to analyze the benefits, costs, challenges, and barriers to the electrification of school districts and transit agencies.
- Can-and-invest and carbon pricing policies — Placing an auctioned allowance fee on fossil fuel components of on-road motor fuels will reduce emissions and raise revenues. These revenues could be invested to yield a net benefit for the community.
- Various market-based and financing policies — Additional fees for drivers, such as congestion pricing, vehicle registration fees, mileage-based user fees, and curb pricing could all be used to discourage individuals from utilizing their personal vehicles.
Benefits: Financing electrification initiatives and studies will accelerate the transition to EVs, resulting in better air quality for surrounding communities. Revenues from carbon pricing can be reinvested to support a just transition for workers and disadvantaged communities. The potential market-based and financing policies would disincentivize travel during peak hours, which would reduce congestion and pollution.
Final Thoughts
Because of the amount of GHG emissions that are generated by the transportation sector, the recommendations of this advisory panel will have a big effect on whether New York state will reach the CLCPA goals. New York benefits from its existing public transportation system. Increasing its accessibility, affordability, and reliability will still be challenging, but there are mechanisms and plans in place that will make the expansion easier. New York already has some energy efficiency and transportation electrification initiatives in place and expanding them while adding new incentives for development and adoption is sure to generate interest in EVs and other low-carbon forms of transportation.
