Transportation for a New Era

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TransporTaTion or a new era 1

Transportation

fo a New EraGrowinG more sustainable communities



2 ULi naT ionaL TransporTaTion poLicy DiaLogUe

Copyright 2009 by the Urban Land Institute

Printed in the United States of America. All rights reserved. No

part of this book may be reproduced in any form or by any means,

electronic or mechanical, including photocopying and recording,

or by an information storage and retrieval system, without written

permission of the publisher.

Recommended bibliographic listing:

The Urban Land Institute.Transportation for a New Era: Growing

More Sustainable Communities. Washington, D.C.: The Urban Land

Institute, 2009.

Senior Executives

Richard M. Rosan

President, ULI Worldwide

Cheryl Cummins

President, ULI Americas

Maureen McAvey

Executive Vice President

Initiatives Group

Principal Researchers

and AdvisersTom Murphy

Senior Fellow

Urban Development

Robert Dunphy

(Former) Senior Fellow

Transportation and Inrastructure

Rachel MacCleery

Managing Director

Inrastructure Initiative

Uwe Brandes

Vice PresidentInitiatives Group

Sarah Jo Peterson

Senior Research Associate


Sarah Jawaid

Research Associate


Production Sta

Craig Chapman

Director, Publishing Operations

Colleen DiPietro

Production Coordinator

Betsy VanBuskirk

Creative Director

David James Rose

Manuscript Editor

Design and Layout

AURAS Design

On the cOver: A sa us

o o t tomas buldg Sou Lak Uo, Sal. (Gabhaso, Wb tompso As)



J u l y 2 0 0 9

Transportation

fo a New EraGrowinG more sustainable communities




We ace a

historic opportunity

to undamentally

rethink how we plan,

und, and build our

transportation networks.




Executive SummaryTransportation in America is at a pivot point. With the upcoming

authorization o the next ederal surace transportation bill—the

current bill expires in September 2009—we ace a historic oppor-

tunity to undamentally rethink how we plan, und, and build our

transportation networks.

These choices matter; the country’s economic vitality, environ-

mental and energy sustainability, and quality o lie depend heavily on

the choices we make about transportation. By reocusing the ederal

program, making the reorms we need, and acilitating the participa-

tion o the private sector, transportation policy can set

the stage or a brighter uture or all Americans.

Congress, the Obama Administration, and others

are working diligently to orge a path orward, and

many proposals or reorm are on the table. The

connections among land use, inrastructure, and sus-

tainability are being discussed like never beore.

To contribute to this conversation, the Urban

Land Institute, through its National Transportation

Policy Dialogue, brought together leading real estate

and transportation thinkers and practitioners to con-

sider the links among real estate, development, and

transportation. Several recommendations—intended to guide trans-portation policy and programs at the ederal level—were identifed:

Create a national vision or transportation and inrastructure.■

Support the metropolitan areas that drive U.S. prosperity.■

Recognize the role o land use in linking inrastructure, housing,■

and sustainability.

Foster and encourage more compact development.■

Channel unding through the “three Bs”:■

UseX base ormula unds to maintain the system;

Provide aX bonus pool to create incentives or sustainable

investment; andCreate an independent American InrastructureX Bank to invest

in inrastructure.

ULI is grateul or the generous support it received or the

ULI National Transportation Policy Dialogue rom the Rockeeller

Foundation and ULI trustee James Curtis.




Federal policy needs to make

the connections among

inrastructure, housing

and buildings, and

sustainability.




New national leadership, ever smarter and more sophisticated technolo-

gies, growing support for rail and transit, and a population that continues to

increase by tens of millions of people every decade mean that the country has

an unprecedented opportunity to “pivot,” to start making better infrastructure

investment decisions and achieving better outcomes.

How can the next surface transportation bill help the country pivot to a new

era and build more sustainable communities? Some suggestions are below.

1Create a National Vision for Transportationand Infrastructure

The vast challenges we ace—including economic crisis, global competition, conges-tion and bottlenecks, energy insecurity, and climate change—are exacerbated by

years o underinvestment in our inrastructure, which has let it aging and stressed.

But we also have unprecedented opportunities that should not be squandered.

Transportation orms the competitive base or the nation, but stressed and

crumbling transportation inrastructure earned mostly Ds—and even D-minuses—on

the American Society o Civil Engineers’ 2009 Inrastructure Report Card. Bottlenecks

in moving reight at port and rail hubs dampen productivity. In the last decade, driv-

ing has stopped growing and in December 2007 started to decline.

At the same time, the tax on gasoline—the source o most government revenue

or roads and transit—is in decline. Reduced driving and more uel-ecient vehicles

mean even less will be collected in the uture. The country must address its transpor-

tation shortalls by setting national goals, prioritizing the repair o existing networks,

and creating a ramework or making better decisions or transportation. The country

must nd ways not just to spend on transportation and inrastructure but to invest in it.

To guide uture transportation investments and create a ramework or judging

success, the United States needs a national vision or inrastructure, one that is

Pivoting to a New Era

Part i

The United Statesneeds a national

vision to conront the

challenges o today and

seize the opportunities

o tomorrow.

ot: Th wtfld s ct butl th tvt. (wtfld)




supported by measurable perormance objectives. The vision should address eco-

nomic competitiveness, environmental sustainability and climate change, energy

independence, support o metropolitan areas, and links between inrastructure and

land use. The vision should guide the activities o the ederal government across

agencies—not just the U.S. Department o Transportation—but also the U.S.

Environmental Protection Agency, and the U.S. Department o Housing and UrbanDevelopment, and others.

Bolstered by a clear vision or uture inrastructure and transportation invest-

ments, the private sector—including real estate developers—can play an important

role in helping to build the communities America needs and wants. The private

sector can build and nance new developments around transit stations and other

transportation networks, launch partnerships to build and rebuild inrastructure, and

play other helpul roles, becoming a powerul partner in eorts to create more sus-

tainable communities.

2Support the Metropolitan Areas That DriveU.S. Prosperity

To remain internationally competitive and internally productive, the country needs to

rethink how to support its metropolitan areas, which are critical to the economy o

the nation. The nation’s 100 largest metropolitan areas are home to three-ourths o

the nation’s economic output, and will be the driver o our uture prosperity.

The United States is still one o the astest-growing countries in the world,

and metropolitan areas will continue to attract people. The 110 million additional

Americans expected by 2050 will mean that tens o millions o new housing

units and tens o billions o square eet o new nonresidential development will

Figure 1

U.S. Ppulti Gwth Tds

SOUrce: U.S. csus Buau.

400

300

200

100

0

P o p u l a t i o n i n M i l l i o n s

Recognizing the links

between urban and

suburban locations,

supporting the

development o

metropolitan areas

as a whole, and

devising transportation

systems that work or

metropolitan areas

will be critical to the

uture o the country.

1900 1910 1920 1930 1940 1950 1970 1980 1990 2000 2010 2020 2030 2040 2050

Actual Population

Projected Population




be needed. Where development goes—and how transportation systems connect

it—will help determine America’s competitive position in the world.

Where people live in metropolitan areas is changing. Central cities and inner

suburbs are attracting a greater share o growth. According to the U.S. Environmental

Protection Agency, between 1990 and 2007 the share o new residential construction

going into central cities and inner suburbs increased relative to new construction

in outer suburbs and exurbs. The most dramatic increases occurred in the last ve

years and continued in 2007 during the economic downturn. Developers in a recent

ULI survey predicted that this urban trend will continue. Most see stronger growth

potential or central cities and inner suburbs than or the suburban edge. Despite the

growing vitality o urban areas, suburban locations are still home to a lot o develop-

ment, and suburban and ringe areas will continue to grow.

Supporting the development o metropolitan areas means, in part, increased

ederal support or transit services, which can provide vital local and regional

links and provide alternatives to automobile use, and also or development around

transit. Federal transportation policy and unding should support increased transit

service including the traditional heavy-rail systems, the newer light-rail systems,

bus rapid transit, buses, and more, increasing unding availability and streamlining

project reviews. Also important is support or increased development and density

around existing or new transit, unding land acquisition, public parking, and side-

walks and pedestrian amenities. Inrastructure investments in metropolitan areas

can be complicated and time-consuming to do; streamlining and speeding up the

planning and construction timelines or projects in metropolitan areas will be key.

Figure 2

Gwth Td Pdictis b U.S. Dlps i ULI Su

QUeStiOn: Plas alua ollowg loaos ou go o gow poalo x as.

SOUrce: ULi Mmb Su, 2008.

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90%

80%

70%

60%

50%

40%

30%

20%

10%

0%Greenfelds/

Fringe

OuterSuburbs

InnerSuburbs

CentralCities

Decline

No Growth

Moderate Growth

Rapid Growth

Th lht-l l phx, az, mmdt u t 12,000 - hu, th m x-lhh. (Vll MeTro)




3Recognize the Role of Land Use in LinkingInfrastructure, Housing, and Sustainability

Land use shapes transportation, which in turn shapes land use. Their reciprocal

relationship is a truism o the development process. Transportation policy is, in part,

land use policy. And land use patterns aect energy consumption and greenhouse

gas emissions.

Ignoring these connections is like using only one hand to tackle the task o

creating cleaner, more productive communities. The solution is a more holistic

Federal policy needs to

make the connections

among inrastructure,

housing and buildings,

and sustainability. Land

use is the arena in which

these drivers intersect.

i n f r

A S t r U c

t U r e

h O U S i n

G & B

U i L d i n

G S

S U S t A i n A B i L i t y

land

use

Figure 3

Ld Us LisIfstuctu, Husigd Buildigs, dSustibilit

FeDeraL ParTnerSHIP For

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approach, one that integrates inrastructure, housing and buildings, and sustain-

ability with land use.

While land use is, by and large, a local responsibility conducted under state

laws, the ederal government should help Americans harness the cycle o land use

and transportation to national goals. Because land use is integral to climate change

and energy consumption, the ederal government should provide support or moresustainable land use patterns, and create incentives or more responsible land use.

4Foster and Encourage More Compact Development

The more that housing, jobs, and services spread out, the harder it becomes

to access them without an automobile. Only with more compact development and

more transportation options—rapid transit and walkable designs—is it easible to

achieve national goals or economic productivity and environmental sustainability.

What’s more, Americans increasingly demand more compact product types.

Consumer preerence surveys and studies o housing values show that there is

The ederal government

should provide incentives

and reward decisions

that result in more

compact development.

WHaT IS ComPaCT DeveLoPmenT?

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an unmet demand or walkable neighborhoods. Transit use is up and voters have

repeatedly approved reerendums raising taxes or approving bond issues or

expanded rapid transit service. But the supply o aordable compact, mixed-use,

transit-oriented development products has not kept pace.

Studies show that compact development results in ewer miles traveled,

reducing uel consumption and emissions. In areas where housing, employment,shopping, or services are close by—even in low-density places without high-quality

transit service—people walk more. Compact development can reduce the cost o

public inrastructure and encourage healthy habits such as incorporating walking

and biking into daily routines. With transportation options, amilies save. Each auto-

mobile a household maintains costs it, annually, between $5,500 or a small sedan

driven 10,000 miles a year to nearly $12,000 or an SUV driven 20,000 miles a year.

The compact development model can be adapted to urban, suburban, and

rural contexts. New communities can develop in more compact ways, and many

existing suburban areas are ready to be revamped into a more concentrated, walk-

able, and mixed-use “village” orm. However, in many communities, development

around transit and other likely locations is stymied by zoning restrictions and

parking requirements.

SOUrce: naoal Assoao o ralos, Pofl o Bus’ hom au Ps, 2007.

Figure 4

nighbhd Ftus vlud b H Schs

Age o Respondents

P e r c e n t R a n k i n g a s I m p o r t a n t

All 18–24 25–34 35–44 45–54 55–64 65–74 75 or older

45

40

35

30

25

20

15

10

5

0

Near Restaurants, Entertainment Areas

Near Schools

Near Public Transportation

Close to Work

Sidewalks

Near Shopping




Federal support or locally driven parking and zoning reorm would go a long

way. Without mandating any particular solution, ederal grants should be avail-

able to und technical assistance and promote changes to existing zoning codes

to allow or more compact, transit-oriented development. Through ederal incen-

tive and support programs, communities should be encouraged to innovate around

parking—including creating shared parking, and removing or limiting accessoryparking regulations.

Communities should also be encouraged to ollow the lead o metropolitan areas

with “livable communities” programs. These programs provide incentives or more

compact, pedestrian-riendly, transit-oriented, mixed-use development, and reduce

driving at the same time. Their success should be touted as national models or

ederal promotion.

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Federal transportation

unding should be channeled

through three mechanisms—

base, bonus, and bank.




Channeling FundingThrough “the Three Bs”

Part ii

Revenue-raising strategies should be carefully designed both to generate the

money needed and to promote the objectives described above. On the expenditure

side, federal transportation funding should be channeled through three mecha-

nisms—base, bonus, and bank—which are described in more detail below.

1Use Base Formula Funds to Maintain the SystemBase ormula unds should be the primary unding source or system main-

tenance and preservation. Accounting or approximately 75 percent o total ederal

transportation unding, the base ormula unds should be distributed to states, met-

ropolitan regions, and localities on a mode-neutral basis (that is, all eligible projects

should receive the same ederal match).Base ormula unds should ocus on providing adequate levels o saety and

service to all. The primary use o the ederal base ormula unds should be to “x it

rst”: unds should fow or use predominantly on repair and maintenance o existing

transit and highway programs. The ederal match or major capacity expansions o

Base ormula unds—

modifed to reward

reduced driving per

capita and other

goals—should und

system maintenance

and preservation.




both transit and road networks should be paid or out o the bonus unds program

described below.

The ormula used to distribute the unds should be shited away rom the

current metrics used in the ederal unding ormulas, which are based on popula-

tion and vehicle miles traveled. Instead, they should be modied to reward reduced

driving per capita, promote the eective use o transit, and achieve other economicand environmental goals.

2 Provide a Bonus Pool to Create Incentivesfor Sustainable Investment

A new bonus unds program should be created to turn policy goals into workable

projects on the ground. Accounting or a signicant portion o total unding or new

transportation—25 percent—the program should distribute grant unds on a com-

petitive basis. Major new capacity additions or road and transit should fow through

this program. The bonus pool should also support planning, regulatory, and landdevelopment innovations that advance ederal goals.

Fostering more compact land use and creating a stronger linkage between

land use and inrastructure should be the key criteria or receiving unds rom this

program. In particular, criteria should be developed to identiy and select projects

TIGer: an InnovaTIve TranSPorTaTIon GranTS ProGram

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A competitive bonus

program should und

capacity additions and

create incentives or

planning, regulatory,and land development

innovations.




that will achieve compact development, increase transit services and development

around transit, encourage parking and zoning reorm, and urther the other policy

objectives described above. Projects with signicant private sector involvement and

investment commitments, as well as local involvement, should be rewarded.

3Create an Independent American Infrastructure Bank to Invest in Infrastructure

A new American Inrastructure Bank (AIB) should be created as an independent

public institution to und inrastructure projects—or transport, water, energy,

and more—in pursuit o the nation’s economic, environmental, and social goals.

Structured as a public, independent nonprot nancial institution, the AIB’s broad

goals and lending criteria should be established by its mandate and board o gover-

nors, with lending decisions made by proessional bank sta using sound nancial

underwriting standards. By dening project criteria and creating loan packages with

a variety o length and interest rate terms, the bank will help oster an investment-oriented approach to U.S. inrastructure.

Lending unds to public or private entities or investments in U.S. inrastructure,

the bank will be an important source o long-term capital or projects whose returns

are realized over many years, such as airports, ports, high-speed rail, major bridges,

and new roads and highways. The AIB could be unded and capitalized with a stream

o revenue rom uel taxes, general revenue unds, bonds, or some combination o

these and other sources. The AIB should prioritize projects that have substantial

commitments rom other parties, including the private sector, and are leveraged by

user revenues.

The bank will also be a vehicle or leveraging the investment o private capital

into our nation’s public inrastructure—a potentially signicant source o capital or

inrastructure that currently has ew good channels.

THe eUroPean InveSTmenT Bank

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A new American

Inrastructure Bank can

help catalyze public

and private investment

in inrastructure and

become an important

source o long-term

capital or critical

transport, water, and

energy projects.




Geoff AndersonPresident and CEO

Smart Growth America

Gayle BerensDirector

ULI Center or the West

Uwe Brandes Vice President

ULI Initiatives Group

Joseph BrownPresident and CEO

EDAW

Carla ColemanExecutive Director

ULI SE Florida/Caribbean

Cheryl CumminsPresident

ULI Americas

James CurtisPrincipal

Bristol Group, Inc.

Benjamin de la Pena Associate Director or

Urban Development

Rockeeller Foundation

Tom D’Alesandro

Senior Vice President, DevelopmentGeneral Growth

James DeFranciaPresident

Lowe Enterprises Community

Development, Inc.

Caren DewarExecutive Director

ULI Minnesota

Frederick Dock Director, City o Pasadena

Department o Transportation

Robert Dunphy(Former) Senior Resident Fellow

ULI

Emil FrankelDirector o Transportation Policy

Bipartisan Policy Center

Gregory HummelPartner

Bryan Cave LLC

Sarah JawaidResearch Associate

ULI Inrastructure Initiative

Neisen KasdinChairman, Land Use and Entitlements

Akerman Sentertt

John Knott IIIDevelopment Manager

BPG Properties, Inc.

Michael LanderPresident/Owner

Lander Group

Christopher Leinberger Visiting Fellow

Brookings Institution

Charles LeitnerGlobal Head o Real Estate

RREEF/Deutsche Bank Real Estate

Jay Lindgren Attorney

Dorsey and Whitney

Rachel MacCleeryManaging Director


Kelly MannExecutive Director

ULI Seattle

Maureen McAveyExecutive Vice President

ULI Initiatives Group

Andy McClurgSenior Associate

Sasaki

John McIlwainSenior Resident Fellow

ULI

Tom Murphy

Senior Resident FellowULI

Arthur C. (Christian “Chris”)NelsonPresidential Proessor o City

& Metropolitan Planning

University o Utah

Sarah Jo PetersonSenior Research Associate


Roger PlattSenior Vice President and Counsel

The Real Estate Roundtable

Robert PuentesFellow, Metropolitan Policy Program

Brookings Institution

Dale Anne ReissGlobal Director o Real Estate,

Hospitality, and Construction Practices

Ernst & Young

Rick RosanPresident

ULI Worldwide

Mark SchneiderManaging Partner

Fourth River Development

Amanda SevareidResearch Associate


Peter StoneSenior Vice President – Acquisitions

ING Clarion Partners

Heidi Sweetnam Vice President

ULI Community Outreach

Marilyn Taylor

DeanUniversity o Pennsylvania

School o Design

Nick TurnerManaging Director


Marilee UtterPresident

Citiventure Associates LLC

Daniel Van EppExecutive Vice President/COO

Newland Communities

Carl WeisbrodPresident

Real Estate Division, Trinity Church

Curt Wiley(Former) Executive Director

ULI Chicago

David WoodDirector

Boston College Institute or

Responsible Investment

Dialogue ParticipantsULI grateully acknowledges the contributions o Dialogue participants, including the ollowing:



aBoUT THe ULI naTIonaL TranSPorTaTIonPoLICy DIaLoGUe

Transportation is critical to the vitality o the U.S. economy and the

real estate industry. Through the ULI National Transportation Policy

Dialogue, ULI is engaging leaders rom the real estate and transporta-

tion felds to discuss pressing transportation challenges and identiy

a common set o goals and principles or transportation policy

reorm. The Dialogue consists o a series o workshops and events,

articles and publications, and other activities centered around the

pressing transportation issues acing the country.

aBoUT ULI

The Urban Land Institute (www.uli.org) is a nonproft education

and research institute supported by its members. Its mission is to

provide leadership in the responsible use o land and in creating and

sustaining thriving communities worldwide. ULI’s prestigious mem-

bership consists o the land use industry’s oremost proessionals

around the globe. Established in 1936, the Institute acilitates the

open exchange o ideas, inormation, and experience among local,

national, and international industry leaders and policy makers dedi-

cated to creating better places.

1025 Thomas Jffson Stt, NW

St 500 Wst

Washnton, DC 20007

Phon: (202) 624-7000

Fax: (202) 624-7140

www.l.o



4

With the upcoming authorization of the next federal surface trans-

portation bill, the United States has the historic opportunity to

fundamentally rethink how we plan, fund, and build the country’s

transportation system.

Transportation or a New Era: Growing More SustainableCommunities lays out several recommendations for transportation

policy and programs at the federal level:

Create a national vision for transportation and infrastructure.O

Support the metropolitan areas that drive U.S. prosperity.O

Recognize the role of land use in linking infrastructure, housing,O

and sustainability.

Foster and encourage more compact development.O

Channel funding through “the three Bs”:O

UseX base formula funds to maintain the system;

Provide aX bonus pool to create incentives for

sustainable investment; and

Create an independent American InfrastructureX Bank

to invest in infrastructure.

The country’s economic vitality, environmental and energy sustain-

ability, and quality of life depend heavily on the choices we make

about transportation. By refocusing the federal program, making

the reforms we need, and facilitating the participation of the

private sector, transportation policy can set the stage for a brighterfuture for all Americans.

Transportationfo a New Era

GrowinG more sustainable communities

1025 Thomas Jffson Stt, NW

St 500 Wst

Washnton, DC 20007

www.l.o

Transportation for a New Era

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