# PARTNERS .

An integrated
founded bu

and Massachusetts General Hospital Septembe

r 24 , 201 2 :t uj Real Fume ami Facili Jerom e Graf e MassDE P Burea u o f Wast e Preventio

n On e Winte r Street , 6t h Floo r health eat

e system Boston , M A 0210 8 RE: Proposed

Amendments to the Transit System Improvements Provisions of Brigiwm and

the Slate Implementation Plan Women's Hospital Mr
. Grafe ,

Iwrit e o n behalf o f Partner s HealthCar

e System , Inc
. an d it s affiliate , th

e Massachusett

s Genera l Hospita l (collectively , "Partners" ) t o commen t o n th e propose d amendmen

t t o th e Stat e Implementatio

n Plan' s Transi

t Syste m Improvement

s regulation s whic

h would , amon

g othe r provisions , delet

e th e requiremen

t tha t th e Massachusett

s Departmen

t o f Transportatio

n ("MassDOT" ) complet

e th e fina l desig

n fo r th e Re d Line/Blue Lin

e Connector
. Partner s remains astron

g supporte r o f th e MBT A transi

t syste man d o f th e Re d Line/Blue Line Connector , which w e believ e would provid

e acritica l missin g lin k i n th e MBT A syste

man d provid e substantiliTbenefit

s t o th e MBT A an d th e peopl e an d communitie s tha

t i t serves . On

e yea r ag o w e submitte d comment

s o n th e 201 1 Transi

t Commitment

s Statu s Repor t requestin g tha t DE P den y MassDOT' s reques

t t o amen d th e SI P an d tha t MassDO T instea d reconven

e th e Re d Line/Blu

e Line Connecto

r Projec t Working Grou

p (o f which w e wer e amember

) t o develo p aproces s an

d schedul e fo r bringin g desig

n o f th e Connecto

r t o th e poin t wher e i t coul d late r b e use d a s th e basi s fo r

adesign-buil

d bidding package
. A cop

y o f thos e comment s i s attache

d t o thi s letter
. Unfortunately , th e SI P amendmen

t proces s ha

s proceede d an d MassDO

T neve r reconvene

d th e workin g grou

p no r consulte d with thos

e stakeholder

s mos t affected b

y its decisio

n t o abando n plannin g fo r th e Connector
. Partner s continue s t

o believ e tha t MassDO T shoul d invest th e modes t su m- whic h w e believ e i s nowher

e nea r $5 0 millio n - necessar

y t o complet e th e MEP A revie w proces s an

d advanc e th e desig n o f th e Connector
. Whethe

r o r no t th e Connecto

r ultimatel y remains i n th

e SIP, i t i s aproject

wit h substantia

l transportatio

n benefits , allowing fo r

productiv e us e o f excess capacit

y o n th e

Partner s HealthCar

e System , Inc. , Prudentia l Tower , Suit e 1150, 80

0 Doylsto n Street , Boston , M A 02199-800 1 Tel : 61 7 278-1037 , Fax : 61 7 278-1048 , email : kwest#parrners.or gBlu e Lin e an d thereb y enablin g th e MBT A t o gro w it s ridership
. A s establishe d b y th e draf t Environmenta

l Impac t Report , acombine

d Re d an d Blu e Lin e statio

n a t Charles/MG

H - a n are awit h on e o f th e larges t concentrations o f

job s i n Bosto

n - woul d b e on e o f th e busies t Blue Lin e stations i n th

e MBT A syste

mi n th e yea r 2030
. Partner s remain s hopeful tha

t th e sever e financia l constraint

s currentl y facin g th

e MBT A an d MassDO

T wil l ultimatel

y b e addresse d b y increase d stat e an d federa l investmen

t i n transit
. Eve

n now , MassDO

T i s preparin

g a"baselin

e assessment

" o f th e stat e transportatio

n system' s futur

e capita l need s require d b y sectio n 1 3 o f Chapte r 13 2 o f th e Act s o f 2012
. Partner

s strongl y believe s tha

t th e Connecto

r shoul d b e include d a s par t o f thi s an d othe r plans b y th e Commonwealt

h t o invest i n astron g regiona l transi t syste m servin g metropolita

n Boston
. W e therefor e reques t tha t DE P leav e intact th e SI P commitmen

t t o advanc e th e desig n o f th e Re d Line/Blue Lin

e connector
. Than

k yo u fo r you r consideratio

n o f thes e comments
. Respectfull

y submitted , Kathry n E
. Wes t Vic e Presiden

t o f Rea l Estat e & Facilitie s Partner s HealthCar

e System , Inc
. CC : Secretar

y Richar d A
. Davey , MassDO

T

# PARTNERS .

Septembe r 20 , 201 1

An integrated health care system founded by Brigham and Women's Hospital and Massachusetts General Hospital Kathryi i E
. Wes t Vice President of Reel Estate end Facilities Kat e Fichter MassDO T Offic e o f

Transportatio n Plannin g Roo m415 0 Te n Par k Plaz a Boston , M A 0211 6 Jerom e Graf e MassDE P Burea u o f Wast e Preventio n Boston , M A 0201 8 RE: State Implementation Plan - Transit Commitments 2011 Status Report Submitted

to MassDEP

on July 27, 2011 by the Massachusetts Department of Transportation Ms
. Fichter

and Mr
. Grafe , Iwrit e o n behal f o f Partner s HealthCar

e System , Inc
. and it s affiliate , the Massachusetts Genera l Hospital (collectively , "Partners" ) t o commen t o n the Stat

e Implementatio n Pla

n

- Transi t Commitment s 201 1 Statu s Repor t submitte d t o the Massachusett s Departmen t o f Environmental Protectio n ("MassDEP" ) o n Jul y 27 , 201 1 b y th e Massachusetts Departmen

t o f Transportatio n ("MassDOT")
. Specifically , I a mwritin g wit h respect

t o on e elemen t o f the SI P an d regulator

y requirement s i n 31 0 CM R7.36 , th e requiremen t i n subparagrap

h (i ) o f paragrap h 2 that

require s tha

t "[bjefor e Decembe

r 31 , 2011, [MassDOT ] complet

e fina l desig n o f

the Re d Line/Blu e Lin e Connector , fro mthe Blu e Lin e a t Governmen

t Cente r t o th e Re d Lin e a

t Charle s Station. " A s yo u know , Partner s i s astron g supporte r o f the MBT A transi t

systemand o f

th e Red Line/Blu e Lin e Connector , whic h w e believ e woul d provid e acritica l missin g lin k i n th e MBT A syste

mand woul d - a

s th e complete d Draf

t Environmenta l Impac t

Repor t ("DEIR" ) documente d - provid e substantia l benefit s t o the MBT A syste man d the peopl e an d communitie s tha

t i t serves . Partners i s als o amembe r o f th e Re d Line/Blu e Lin e Connecto r Projec t Workin g Group , whic h worke d wit h MassDO T staf f an d consultant s durin g th e proces s o f

developin g the DEI Rfo r the Connector
. Partner s i s therefore disappointe d tha

t MassDO T has , b y letter dated Jul y 1 , 201 1 (bu t

provide d to the workin g grou p onl y i n earl y August) , requested tha t MassDE P "undertak

e the step s necessar

y t o amen d th e Transi t SystemImprovement

Regulation s and the SI

P t o remov e the requirement

to complet

e fina l desig n o f

the Re d Line/Blu e Lin e connector " - an d tha t thi s ste p was take n withou t

an y prio r consultatio n wit h or

notic e t o th e Workin g Group ,

Partner s HealthCar

e System , Inc. , Prudentia l Tower , Suit e 1150, 80 0 Boylsto n Street , Boston , M A 02199-800 1 Tel : 61 7 278-1037 , Fax : 61 7 278-1048 , email : kwest@partners.org 1whic h include s man y o f the stakeholder s mos t

intereste d i n and affecte d b y plan s fo r th e Connector
. B y thes e comments , Partner s respectfull y requests tha t DE P den y MassDOT' s reques t

to amen d the Regulation s an

d SI P a t thi s tim e and instea

d reques t tha t MassDO T reconvene the Workin g Group an d develo p aproces s an

d schedule fo r

completin g afina l Environmental Impac t Repor t and "fina l design " fo r

th e Connecto

r that woul d complet

e the MEP A process , fulfil l the SI P requirement

a s i t i s currentl y writte n and lay the groundwor k fo r adesign-buil d constructio n proces s fo r

th e Connector

a t som e poin t i n th e futur e whe n constructio n fundin g become s available
. W e mak

e thi s reques t

fo r thre e reasons :
• Th e Re d Line-Blu e Lin e Connector ha s bee n demonstrate d t o b e avaluabl e additio n t o the MBT A transi t

system ;
• MassDO T ha

s faile d t o demonstrat

e tha t th e SI P shoul d b

e reopened , especially give n tha t completio n o f

a"fina l design " fo r

thi s projec t

sufficien t

t o fulfil l the SI

P commitmen t

an d lay th e groundwor

k fo r futur e constructio n o f

the Connector

coul d b e accomplishe d a

t acost fa r lowe r tha n th e $49-5 0 millio n repeatedl y cite d b y MassDOT ; an d

• MassDO T ha

s faile d t o consul t

wit h the key stakeholder s an d participant s i n th

e Re d Line/Blu e Lin e Connector Projec t Workin g Grou

p abou t it s decisio n t o terminat

e al l environmental revie w and desig n work o n th e Connector

and reques t

deletio n o f

the SI P requirement
. The Red Line-Blue Line Connector is a Valuable Project Partners , alon g wit h other s includin g A Better Cit y and th e Conservatio n La w Foundation , ha s lon g argue

d that constructio n o f

th e Red-Blu e Connector wil l provid e substantia

l air quality and transportatio n benefits , particularly , bu t no t only , i n th e cor

e area s o f Revere , Eas t

Boston , Bosto n prope

r and Cambridge
. Resident s o f communitie s alon g th e entir e Blu e and Re d Lin e servic e area

s woul d us

e the Red-Blu e Connecto r no t onl y fo r direc t servic e t o th e Massachusetts Genera l Hospita l an

d t o th e other , majo r

medical facilitie s i n th e Charles/MG H area , bu t als o t o reac h th e many othe

r employment

centers an

d othe r destination s alon g thes e tw o rapi d transi t lines
. Th e Connector

woul d als o benefi t

th e transi t syste ma s awhole
. Th e Re d and Blu e Line s remai n the onl y tw o transi t line s i n th e Bosto n transi t networ k tha t d o no t directl y intersec t

and the lac k o f adirec t lin k force s doubl e transfer s o n passenger s an d extr aloadin g o n tw o o f the mos t overloade d link s i n the T networ k - the Gree

n Lin e fro mGovernmen t Cente r t o Par k Stree t and th e Re d Lin e fro mCharle s Stree t t o Par k Stree t - causin g overcrowdin g fo r passenger

s o n the Re d an

d Green Lines , a

s wel l a s t o Blu e Lin e rider s whos e trip s go beyon d Governmen t Center
. Th

e lengthenin g o f

station s o n th e Blu e Lin e t o permi t 6-ca r trains , rathe

r tha n 4-car , an

d the ne w equipment

to suppor

t this , means tha

t th e Blu e Lin e i s abou

t t o have 50 % mor

e capacity , the onl y on

e o f the rapi d transi t

line s wit h extracapacity
. Th e Connecto r wil l help to us

e thi s capacit y productivel y and allo w the rapi d transi t syste mt o gro w it s ridership. Th e Cornmonwealth' s ow n ai r qualit y modelin g ha

s als o demonstrate d tha

t thi s projec t

woul d provid e substantia

l air qualit y benefits
. I n 2008 , whe n MassDE P an d subsequentl

y the

2Environmenta l Protectio n Agenc y approve d change s t o th e Stat e Implementatio

n Pla n removin g th e commitmen

t fo r constructio

n o f th e Connector

, th e ai r qualit y benefits attributable t

o th e Connecto r wer e calculate

d t o b e roughl y th e sam e a s thos e attributabl

e t o th e Gree n Lin e extension
. Th

e last roun d o f change s t o th e SI P wer e designe d t o secur e th e eventua l benefits o f bot h o f thes e importan

t projects b y "lockin g in " acommitmen t t o construc t th e Gree n Line extensio n b y adat e certai n whil e a t th e sam e tim e continuin

g wit h an d completin

g final desig

n o f th e Connecto

r i n orde r t o la y th e groundwor

k fo r it s eventua

l construction
. Th e Draf t Environmenta

l Impac t Repor t complete d i n 201 0 confirmed wha

t Partner s an d othe r proponent s o f th e Connecto

r ha d long argued : tha

t thi s project

woul d increas

e transi t ridership , reduc e drivin g an

d resultin g ai r pollutio n an

d greenhous

e gases, increas

e th e capacit y o f th e MBT A syste

man d improv e mobilit y an d acces s t o jobs , educatio

n an d healt h car e fo r transi t users , particularly thos

e i n communitie s serve

d b y th e Blu e Line
. According t

o th e DEIR , dail

y boarding s a

t Charles/MG

H statio n woul d increas

e fro m10,050 i n th

e no-buil d cas

e t o 22,39 0 i n 203 0 i f th e Connecto

r i s built
. Eve

n netting ou

t th e riders wh

o woul d n o longe r boar d a t Bowdoin station , Blu

e Line ridershi

p a s awhol e would increas

e b y 8,80 0 (boarding s an

d alightings ) daily i n 2030
. Charles/MG H woul d b

e on e o f th e busies t Blu e Line stations i n th

e MBT A syste

mi n 2030 , fa

r busie r tha n Aquariu man d nearl y a s heavil y use d a s th e busies t Blu e Line stations i n 2030 , Governmen t Cente r an d State
. As note

d i n ou r comment s o n th e DEIR , Partner s believes tha

t eve n thes e ridershi p estimate s ma y b e lo w becaus

e th e underlying lan

d us e dat ao n bot h job s an d housin g use d t o calculat e ridership underestimate

d th e likel y growt

h i n population an

d employmen

t i n th e rapidly growin

g area s tha t th e Connecto

r woul d serve . Th e DEI Ralso confirmed tha

t th e Connecto

r woul d benefit

th e MBT A rapi d transit

syste ma s a whole—no

t jus t th e Re d Line an d Blue Lines—becaus

e i t woul d serv

e a s a n essentia l link fo r al l transi t rider s passin g throug h th e hear t o f th e MBT A system
. I n addition t o th e projected increas e i n Blu e Line ridership , Re

d Lin e boarding s a

t Charles/MG

H woul d grow by 3,60

0 dail y compare d t o th e 203 0 N o Buil dcase

, a s MBT A rider

s tak e advantag

e o f th e abilit y t o transfe r line s farthe

r fro mth e crowde d downtow

n stations
. Th

e DEI Racknowledge

s (a t pag e 2-3 ) tha t th e "Projec t i s neede d t o relieve congestio

n pressur e a t othe r subwa y stations i n th

e Downtow

n Bosto n area. " Th

e DEI Rals o calculate

d tha t vehicl e mile s travele

d woul d b e reduce d b y 5,24 9 pe r da y a s aresul t o f th e overall increase

d transi t ridershi p an d improve d transi t syste m performance , whic h woul d i n tur n woul d reduc

e greenhous

e ga s emissio n b y nearl y 120 0 tons/year
. I n short

, th e Re d Line/Blue Line connecto r represent s asubstantia

l opportunit

y t o increas e transit ridership , reduc

e drivin g an

d reduc e greenhous

e ga s emission s - bu t onl y i f MassDO T maintain s it s commitmen t to desig n thi s importan

t project i n orde r to la y th e groundwor

k fo r it s eventua

l construction
. MassDOT

has Failed

to Demonstrate that

the SIPShould

be Reopened Reopenin g th e SIP , amendin

g th e stat e regulation s an

d proceedin

g throug h federa l approva l woul d b e atime-consumin

g an d costl y proces s whic

h MassDE P shoul d agre e t o undertak e onl y afte r MassDO T ha s demonstrate

d tha t suc h aste p i s essentia

l an d i n th e bes t interest s o f th e

3Commonwealth' s environmen t an dtransportatio

n system
. MassDO

T ha s faile d t o mak e suc h a demonstratio

n an d s o MassDE P shoul d not , a t thi s poin t i n time , gran

t MassDOT' s reques

t t o initiate change

s t o th e SIP
. Instead, MassDE

P shoul d encourag

e MassDO

T t o develo p apat h forward fo r

completin

g a"fina l design " fo r

th e Connecto

r tha t i s sufficient

t o fulfil l th e SI P commitmen

t an d la y th e groundwor

k fo r futur e constructio

n o f th e Connecto

r without spendin g anywher e nea r th e $49-5 0 millio n cos

t estimat e repeatedl y cited b y MassDOT
. Th e fundin g neede

d t o complet e fina l desig

n o f th e Connecto

r i s provided fo r

i n th e "immediat

e needs " Transportatio

n Bon d Bil l o f 200 7 an d necessar y fundin g i s als

o included i n th

e Financia l Pla n fo r th e Long-Rang

e Transportatio

n Pla n currentl y i n th e fina l stage

s o f approva l b y th e Bosto n Metropolita

n Plannin g Organization
. Eve

n thoug h th e fund s ar e i n fac t availabl e t o MassDO T unde r th e bon d bil l an d long-rang

e plan , an d despit e ou r stron g suppor t fo r th e Connector , Partner s agree s wit h MassDO

T tha t i t doe s no t mak e sens e a t thi s tim e t o inves t a n additiona l $5 0 millio n i n th

e desig n o f th e Connector

. W e d o not , however

, agre e tha t th e onl y choice i s betwee

n spendin g tha t amoun t o f mone y an d completel

y abandonin

g th e Commonwealth' s longstandin g commitmen

t t o th e Connector
. A s MassDOT' s filing indicates , t o dat e onl y $ 3 millio n ha

s bee n spen t t o complet e bot h a n Expande d Environmenta

l Notificatio n For

man d DEIR
. While th

e Secretar y decline d t o trea t th e draf t EI Ra s afinal EIR , th

e Ma y 28,201 0 Certificat

e o n th e DEIRlay s ou

t arelatively modes

t scop e o f additiona l wor k tha t would b e require d t o complet e th e MEP A environmenta

l revie w proces s fo r

th e Connector
. Certainl

y th e MEP A proces s could b

e complete

d fo r arelatively modes t additiona l expenditure , a

n investmen

t tha t would hel p mak e Massachusett

s mor e competitive shoul

d discretionar

y federa l fund s eve

r becom e availabl e fo r projects suc

h a s th e Connector
. Wit h respec

t t o completin

g "fina l design " o f

th e Connecto

r a s require d by th e SIP, Partner

s believe s tha

t MassDOT' s assertio

n tha t suc h final desig

n woul d cos

t nearl y $5 0 millio n rest

s o n (1 ) a n inflate d cos

t estimat e tha t ha s neve r bee n full y presente

d fo r publi c revie

w an d (2) a n incorrec t interpretation o f

th e SI P requiremen

t fo r completio

n o f "fina l design"
. Partners ' comment s o n th e Connecto

r DEI Rraise d serious concern

s abou t th e projectio n tha

t th e Connecto r woul d cos

t $74 8 millio n rathe

r tha n th e $29 0 millio n tha

t ha d bee n estimate d onl y tw o year s earlier
. Th

e $4 9 millio n desig

n cos t seem s t o b e base d o n th e assumptio

n tha t roughl y 10 % o f aproject' s constructio

n cos t (withou t considerin

g th e larg e constructio

n contingenc

y included i n th

e $74 8 millio n figure ) woul d nee d t o b e spen t on design
. MassDO

T ha s neve r satisfactoril

y presente d th e basi s fo r thes e cos t projections , eithe

r t o th e Workin g Grou

p o r i n th e draf t EER
. Give n tha t th e primar y reaso n cite d b y MassDO

T fo r requestin g th e deletio n o f Comiecto r desig n fro mth e SI P i s tha t "MassDO T doe s no t believ e tha t spendin g u p t o $50 millio n t o complet e th e project desig n i s awis e us

e o f publi c funds, " i t

i s essentia

l tha t MassDE P require MassDO

T t o presen t th e detail s behin

d thi s desig

n cos t estimat e an d allo w Working Grou p member

s an d th e genera l publi c t o revie w thos e detail s an

d assumption

s befor e relyin g o

n the ma s th e primar y basi s fo r reopenin g th e SIP
.

4Partner s als o respectfully believe s tha t i t woul d b e possibl e fo r MassDO T t o compl y wit h th e requiremen

t t o complet e "fina l design " withou

t spendin g th e fund s necessar

y t o brin g th e project u p t o th e traditiona

l definitio n o f

75 % o r 100 % design
. Th

e transi t regulation s d

o no t defin e th e phras e "fina l design. " A t

atim e whe n MassDO

T i s increasingl

y usin g design-build an

d design

bid-buil d processe

s t o expedit e an d streamlin

e projects , "fina l design " n o longe r mean s somethin g akin t o constructio

n drawings
. Instead , Partner s believes tha

t MassDO T nee d onl y complet e th e MEP A proces s (responding , o f

course , t o th e comment

s tha t hav e remai n unanswere

d fo r mor e tha n ayear ) an d bring desig

n t o th e poin t wher e i t could b e use d a s th e basi s fo r afutur e "design-build " bidding package
. Thi s woul d requir e fa r les s desig

n detail an d therefor e involv e afa

r lowe r pric e tag
. Partner

s believes tha

t bringing th

e Connecto

r t o suc h a "fina l design " woul d i n fac t constitut e a"wis e us

e o f publi c funds " o

n aprojec t

tha t ha s demonstrate

d ai r qualit y an d transportatio

n benefit s fo r

th e Comnionwealth
. MassDOT

has Failed

to Consult

with Key Stakeholders including the Red Line/Blue Line Connector

Project Working Group MassDE P frequentl

y reminds commenter

s i n th e annua l proces s o f

reviewing MassDOT' s statu s repor t o n th e SI P commitment

s tha t it s primar y rol e i s tha

t o f overseein g an d ensurin g th e integrit y o f th e revie w an d revision process . A s par t o f it s critica l role i n ensurin

g th e integrit y o f th e process , Partner

s respectfull

y request s tha t MassDE P postpon e an y actio n o n MassDOT' s reques t t o reope n th e SI P an d delet e th e requiremen

t concernin g final desig

n o f th e Connecto

r unti l afte r MassDO T ha s consulte d wit h ke y stakeholder

s on th e project , includin g th

e Re d Line/Blu e Line Connecto

r Projec t Working Group
. Tha

t grou p ha s no t bee n convene d sinc e earl y i n 201 0 an

d wa s no t consulte d a t al l abou t MassDOT' s decisio

n t o suspen d al l wor k o n th e Connecto r an d reques t it s remova

l fro mth e SIP
. Onl

y afte r th e Statu s Repor t wa s filedwit h MassDE P di dth e workin g grou

p eve n receiv e acop y o f MassDOT' s lette

r t o DE P o n th e Connector
. I t i s particularly importan

t tha t MassDE P requir e MassDO

T t o conven e an d consul t with th e Workin g Grou

p becaus e th e Statu s Repor t assert s tha t "many " member

s o f th e Working Grou

p raise d concern s a s th e revise d cos t projection s wer

e presente d an dtha t "many " o f

the m"questio

n th e merit o f completin

g desig n o n th e project give n th e significantly highe

r desig n cost. " I n fact , Partner s raise d concern s abou t th e validit y o f th e "significantly higher " desig n an d constructio

n cost s a s di dothe r member s o f th e Working Group
. MassDE P shoul d no t gran t MassDOT' s reques t t o reope n th e SI P without first ensurin g tha t th e Working Group' s question s - which hav e gon e unanswere

d fo r ove r ayea r - ar e addresse d an d withou t obtainin g additiona

l feedbac k fromth e Workin g Grou

p an d othe r stakeholder

s abou t th e potentia l fo r solution s othe

r tha n simply abandonin

g th e commitmen

t t o th e Connector

, suc h a s tha t propose d b y Partner s i n thes e comments
.

5I

n closing , Partner

s respectfull

y request s tha t DE P den y MassDOT' s reques

t to amen d th e Regulations an

d SI P a t thi s tun e an d instea d reques t tha t MassDO T reconven

e th e Working Grou p an d develo p aproces s an

d schedul e fo r completin g afina l Environmenta

l Impac t Repor t an d "fina l design " fo r

th e Connecto

r tha t would complet

e th e MEP A process , fulfil l th

e SI P requiremen

t a s i t i s currentl

y writte n an

d la y th e groundwor

k fo r adesign-build constructio n proces s fo r

th e Connecto

r a t som e poin t i n th e futur e whe n constructio

n fundin g become

s available
. Than

k yo u fo r you r consideratio

n o f thes e comments
. Respectfull

y submitted ,
Kathry n E
. Wes t Vic e Presiden

t o f Rea l Estat e & Facilitie s Partner s HealthCar

e System , Inc
.

6