Commonwealt h o f Massachusett s Executiv e Offic e o f Energ y & Environmenta l Affair s

DEVA L L , PATRIC K Governo r TIMOTH Y P
. MURRAY Lieutenan t Governo r 

# Departmen t o

f Environmenta l Protectio n On e Winte rStree t Boston , M A 0210 8 • 617-292-550 0 RICHAR D K
. SULLIVA N JR
. Secretar y KENNET H L KIMMEL L Commissione r



### MassDE P Burea u of Wast e Preventio n Divisio n of Consume r an d Transportatio n Program s



## 31 0 CM R 7.36 : Transi t Syste m Improvement s Backgroun d Documen t an d Technica l Suppor t fo r Publi c Hearing s o n

th e Propose d Amendment s to th e Stat e Implementatio n Pla n fo r Ozon e

Regulator y Authority : Massachusett s Genera l Laws , Chapte r 111 ,

Section s 142 A throug h 142 M Augus t 201 2

Thi s informatio n i s availabl e i n alternat e format
. Cal l Michell e Waters-Ekanem , Diversit y Director , a t 617-292-5751
. TDD # 1-866-539-762 2 o r1-617-574-686 8 MassDE P Website : www.mass.gov/de p Printe d o n Recycle d Pape r

### TABL E O F CONTENT S

Sectio n Pag e I . INTRODUCTIO N 1 II . BACKGROUN D 1 III . SUMMARY O F PROPOSE D AMENDMENT S T O 310 CM R7.3 6 4 IV . AI RQUALIT Y IMPACT S 5 V . ECONOMI C IMPACT S 5 VI . IMPAC T O N OTHE RMASSDE P PROGRAM S 5 VII . AGRICULTURA L IMPACT S 6 VIII . IMPAC T O N MASSACHUSETT S MUNICIPALITIE S 6 IX . MASSACHUSETT S ENVIRONMENTA L POLIC Y AC T (MEPA ) 6 X . PUBLI C PARTICIPATIO N 6 APPENDICE S Appendi x A - Jul y 1 , 201 1 lette

r fro mth e Massachusett

s Departmen

t o f Transportation t

o th e Massachusett

s Departmen

t o f Environmenta

l Protection requestin

g a n amendmen

t t o th e Transi t Syste mImprovement

s regulation , 31 0 CMR7.36 , an d th e Stat e Implementation Plan . Appendi x B - Propose

d Amendment

s t o 31 0 CMR7.3 6Backgroun d Documen tan d Technica l Suppor tfo r Publi c Hearin g T o Conside r Amendment s to : 31 0 CM R7.36 : Transi tSyste m Improvement s

July 201 2 I . INTRODUCTIO N Th e Massachusett

s Departmen

t o f Environmenta

l Protection (MassDEP

) i s proposing amendment

s to th e Transi t Syste mImprovement

s Regulation (th

e Transi t regulation) , 31 0 CM

R 7.36 , an d th e Stat e Implementation Pla

n (SIP) . Th

e propose d amendment

s delet e th e requirefnen

t tha t th e Massachusett

s Departmen

t o f Transportatio

n (MassDOT

) complet e th e fina l desig

n o f th e Re d Line/Blu e Lin e Connecto r fro mth e Blu e Lin e a

t Governmen

t Cente r to th e Re d Line a t Charles Statio

n b y Decembe

r 31 , 2011 . Th

e amendment

s wer e requeste d by MassDO

T i n alette

r submitte d t o MassDE P date d Jul y 1,201 1 (Attachmen

t A) . Th e propose d amendment

s als o modif

y th e existin g publi c proces s requiremen t tha t MassDE P hol dapubli c meetin

g o n th e annua l updat e an d status repor

t withi n 6 0 days o f it s Jul y 1s t submitta l date . Th e 60-da y publi c meetin

g deadlin e woul db e lengthene

d to 7 5 days t o avoi d potentia l conflict s with th

e Labo r Da y holiday . Finally , al l reference s to th e Executive Offic e o f Transportatio

n (EOT ) ar

e replace d with th e Massachusett

s Departmen

t o f Transportation (MassDOT) . II . BACKGROUN D Air Quality Mitigation Commitments for the Central

Artery/Tunnel

Project I n Decembe

r 1990 , th e Executive Offic e o f

Transportatio

n an d Construction (EOTC ) (no w MassDOT) , th

e Massachusett

s Departmen

t o f Public Work

s (MDPW) (no

w MassDOT , Highwa

y Division) , an

d th e Conservatio

n La w Foundatio

n (CLF ) signe

d aMemorandu

mo f Understandin

g (MOU) , whic h committed EOT C an d MDP W to implemen

t ai r qualit y mitigatio n measure s fo r th e Centra l Artery/Tunnel (CA/T ) project . Among thes e measure

s wa s alis t o f transportation syste

mimprovemen

t project s designe

d t o maximize th

e us e o f mass transit . Th

e MO U wa s endorse d b y th e Bosto n Metropolita

n Plannin g Organizatio

n (MPO ) a

s apropose

d amendmen

t t o th e SI P an d wa s submitte d t o MassDEP . I n response, MassDE P promulgate

d 31 0 CMR7.3 6 i n 199 1 an

d submitte

d th e regulatio n to EP

A a s aSI P Revision . EP

A approve d th e SI P revisio n i n Octobe

r 1994 . Reevaluation of

the Three Remaining Transit Projects Required

by 310CMR 7.36 I n 2005 , MassDEP, MassDOT , an d th e Massachusett

s Ba y Transportatio

n Authorit

y conducte

d a publi c proces s t

o reevaluat

e th e thre e outstandin

g projects require

d b y 31 0 CMR7.3 6 an

d

Pag e 1whethe

r thes e projects shoul

d b e constructed . Th

e outstandin

g project s tha

t ha d no t bee n complete d were : 1 ) th

e Gree n Lin e Arborwa

y Restoration ; 2 ) th

e Re d Line/Blu e Lin e Connector 1 ; an d 3 ) th e Gree n Lin e Extensio

n t o Bal l Square/Tuft

s University . Th

e purpose o f MassDOT' s reevaluatio

n wa s t o ensur e tha t th e bes t transportation project s b

e pursue d whil e meetin g it s ai r qualit y commitments . A s par

t o f thi s process , MassDE

P provide d MassDO

T wit h th e ai r qualit y goa l (i.e. , th e leve l o f emissio n reductions ) tha

t an y potentia l projec t substitution s woul db e require d t o mee t unde r arevised regulation an

d th e SIP . I n response, MassDO T develope d apreferre d alternativ e t o th e outstandin

g projects , whic h included th e followin g thre

e projects : 1 . Gree n Line extensio

n beyon d Lechmer

e t o th e Wes t Medfordan

d Unio n Squar

e areas ; 2 . Fairmoun

t Lin e improvements ; an

d 3 . 1,00 0 additiona

l par k an d rid e parking space

s servin g commute

r transit facilitie s i n Bosto n MP O region . Subsequently , MassDO

T submitte

d areques t to MassDE

P t o amen d 31 0 CMR7.3 6 an

d th e SI P t o includ e th e thre e alternative projects . MassDE P agree d t o propose amendment

s to th e Transit regulation t

o includ e th e alternative project s an

d delet e th e Re d Line/Blu e Lin e Connecto r project . MassDE

P hel d apubli c hearin

g o n th e amendment

s o n Decembe

r 21 , 2005 . Als o i n 2005 , th

e Conservatio

n La w Foundatio

n ("CLF" ) filedacomplain t agains t th e Commonwealt

h fo r failin g to complet

e transportation improvemen t project s required unde

r th e 199 1 Transi

t regulation s (31 0 CM

R7.36) an

d th e SI P approve d by U S EP A i n 1994. 2I n it s complaint , CL

F allege d tha t th e Commonwealt

h wa s i n violatio n o f

th e SI P becaus e i t faile dto complet e certai n publi c transportation improvemen t projects , includin g completion o f th e Re d Line/Blu e Line Connecto

r Pro j ec t b y Decembe

r 31 , 2011 . I n orde

r t o resolv e th e litigation , o

n Novembe r 28,2006 , th

e partie s i n CL F v . Romne y entere d int o a n ou t o f cour t settlemen t agreemen t tha t allowedth

e Cour t to dismis s th

e cas e with prejudice . Th

e relevan t sectio n o f th e settlemen t agreemen

t required MassDE

P t o adop t fina l amendment

s t o th e Transi t regulation tha

t delete d th e requirement

s fo r th e origina l thre e transi t projects , includin g th

e Re d Line/Blu e Lin e Connector , adde d th e requirement

s fo r th e thre e alternative transi

t projects an

d also require

d MassDO T t o complet e th e desig n phas e o f th e Re d Line/Blu e Lin e Connecto r b y Decembe

r 31 , 2011 . Th e settlemen

t agreemen

t di dnot requir e MassDO

T to complet

e th e construction o f

th e Re d Line/Blu e Lin e Connector . O n Decembe

r 1 , 2006 , i n respons

e t o comment

s o n th e propose d amendment

s t o th e Transi t regulations , an

d i n accordanc

e wit h th e Novembe

r 28 , 2006 settlemen

t agreemen

t i n CLF v . Romney, MassDE

P promulgate

d amendment

s t o th e Transi t regulatio n tha

t included MassDOT' s preferred alternative project s an d required MassDO

T t o complet e th e desig n phas e o f th e Re d Line/Blu e Line Connecto

r projec t by Decembe

r 31 , 2011 . MassDO

T wa s n o longe r required to construc t th e Re d Line/Blu e Lin e Connecto r project. 3 EP

A approve

d th e regulation a

s aSI P revisio n o n Jul y 31 , 2008 .

1 Thi s projec t

woul dconnec

t th e Re d Line' s Charles Stree

t station t o th e Blu e Line' s Bowdoi n Stree t station . 2 CLF v. Romney, et

al. United

State District

Court for the District

of Massachusetts Civil

Action No. 05-10487

(hereafter referred to as CLF

v. Romney) 3 Se e 31 0 CM R7.36(2)(i ) whic h becam e effectiv e o

n Decembe

r 1 , 2006 . Pag e 22007

Determination of

Air Quality Emission Reductions of the Preferred

Alternative I n accordanc

e wit h 31 0 CM

R7.3 6 (8) , Determination o f Ai r Qualit y Emissio n Reductions , MassDO T wa s require d t o calculat e th e emissio n reduction s tha

t woul dnee

d t o b e achieve d fro m th e preferre d alternative (i.e. , th e projects included i n th

e 200 6 amendment

s t o 31 0 CMR7.3 6 includin g th

e Fairmoun

t Lin e improvements , 100

0 ne w par k an d rid e parking spaces , an

d th e Gree n Lin e extensio

n t o MedfordHillsid e wit h aspu r t o Unio n Square

) an d t o demonstrat

e tha t thes e project s wil l achiev

e 110 % o f th e emissions reduction s tha t woul dhav

e bee n achieve d i f th e Arborwa

y Restoration , th

e Re d Line/Blu e Lin e Connector , an d th e Gree n Lin e extensio

n to Bal l Square/Tuft

s Universit

y ha d bee n built . Thi s calculatio n o r emissions analysi s wa

s required t o satisf y th e anti-backsliding provision s o f th e federa l Clea n Ai r Ac t an d th e requiremen

t i n th e previou s version o f

31 0 CM R7.3 6 tha

t an y substitut e projects achiev

e equivalen

t o r greate r ai r qualit y benefits . MassDO

T wa s als o required to complet

e arepor t documentin

g th e technica l analysis , releas

e i t fo r publi c comment

, respon d t o publi c comments , i n writing , an d submi t th e "administrative record " t

o MassDE P fo r approval . I n March 2007 , MassDO

T submitte

d t o MassDE P a n analysi s prepare

d b y th e Centra l Transportatio

n Plannin g Staf f (CTPS ) fo r

MassDOT' s Offic e o f

Transportatio

n Plannin g o n th e amoun t o f emissions reduction s i t

expecte d t o achiev e b y implementin

g th e thre e alternative projects . Th

e analysi s confirme dtha

t th e thre e alternative projects woul dachiev e greate r emissio n reduction s tha

n th e initia l transi

t project s included i n th

e 199 1 regulation . Th

e analysi s documen t explicitl y state

d tha t "Thi s analysi s doe

s not assum e an y ai r qualit y benefit s associate

d with th e Red/Blu e Connecto

r i n tha t th e SI P commitmen

t to tha t project i s limite dto desig

n an d n o actua l benefit s wil l resul

t unles s th e projec t i s constructed . A t

tha t point , i t wil l b e appropriat e to attribut

e th e ai r qualit y benefits." 4 I n Junes2007 , MassDE

P issue d alette r t o MassDO

T acknowledgin

g tha t MassDO T ha d me t th e requirement

s o f 31 0 CMR7.3 6 (8) . MassDE P supplemente

d it s Decembe

r 13 , 2006 reques

t t o EP A t o amen d th e SI P wit h MassDOT' s submitta l t o satisf y th e ai r qualit y analysi s requirement

s fo r aSI P revision . A s note

d above , EP

A approve

d th e SI P revisio n o

n Jul y 31 , 2008 . O n Jul y 27 , 2011 , MassDO

T submitte

d it s annua

l Transit Commitment

s Statu s Repor t (th e "Status Report" ) t

o MassDEP. 5 MassDO

T state d i n th e Status Repor

t "tha t spendin g scarc e transit projec t fundin g to complet

e th e desig n o f th e Re d Line/Blu e Lin e Connecto r b y th e Decembe r 31 , 201 1 i s no

t awis e us e o f available funds. " MassDO T furthe r claimed tha

t th e desig n phas e o f th e projec t neithe r provide s ai

r qualit y benefit s no

r wer e an y benefit s assigne

d t o i t i n th e SIP . MassDO

T also state

d tha t "i n additio n to th

e lac k o f tangible ai

r qualit y benefits associate d wit h th e Re d Line/Blu e Line Connecto r requirement, fina l desig

n o f th e project s come s a t aconsiderabl

e financial cos

t (mos t recentl y estimate d a t mor e tha n $5 0 million . Give

n th e man y othe r competin g need s fo r [the ] limite dtransportation funding , th e Commonwealt

h ha s no t included th

e projec t i n th e Regiona l Transportatio

n Pla n (RTP) , whic h list s project s

4Se e "Description o f

Modelin g Assumption s an d Analysi s Methodolog

y fo r th e Stat e Implementatio

n Pla n Transi t Commitment

s Project s Curren t an d Propose d Substitutions, " CTPS , March 15 , 2007 , a s revised . 5 MassDO

T i s required t

o submi t a n annua l Status Repor

t t o MassDE

P pursuan t t o 31 0 CM R7.36(7)(a) .
Pag e 3prioritize dfo r construction i n th

e nex t 2 5 years. " A s required unde r th e Transi t regulations , MassDE P held apubli c hearin

g an d commen

t perio d o n th e Status Report . III . SUMMARY O F PROPOSE D AMENDMENT S T O 310 CM R7.3 6 MassDE P i s proposin

g tw o substantiv

e revision s t

o 31 0 CMR7.36 . Thes

e revision s include : 1 . Deleting th

e requiremen

t tha t MassDO T complet

e fina l desig

n o f th e Re d Line/Blu e Lin e Connecto r fro mth e Blue Lin e a

t Governmen

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

n ("th e Re d Line/Blu e Lin e Connector" ) no w required by 31 0 CMR7.3 6 (2)(i) ; an d 2 . Modifyin g th

e existin g publi c proces s requiremen t tha t MassDE P hol dapubli c meetin

g o n th e annua l updat e an d status repor

t withi n 6 0 day s o f it s required Jul

y 1s t submitta l dat e no w required b

y 31 0 CMR7.3 6 (7)(b) . Deletion of

the Design of

the Red Line/Blue Line Connector 31 0 CM R7.3 6 (2)(i ) require s MassDO T t o complet e final desig

n o f th e Re d Line/Blu e Line Connecto r b y Decembe

r 31,2011 . I n respons

e t o thi s requirement, MassDO T took anumbe r o f step s t o advanc e th e Re d Line/Blu e Lin e Connecto r desig n including , bu

t no t limite dto , allocating resource

s t o advanc e th e conceptua

l design , completin

g aDraf t Environmenta

l Impac t Report, an d formin g an

d meetin g wit h aworkin g group . However, MassDO T ha s determine

d tha t allocating additiona

l an d scarc e transportatio

n fundin g to th

e final desig

n o f th e projec t i s no t justified . Therefore , i n Jul y 201 1 MassDO

T requeste

d tha t MassDE P remov e th e Re d Line/Blu e Lin

e Connecto

r desig n fro mth e regulation an

d th e SIP . Th e scop e o f MassDEP' s revie

w o f MassDOT' s reques

t i s to determin

e whethe r th e remova l o f th e Re d Line/Blu e Lin e Connecto r desig n woul dhav

e a n impac t on th e air qualit y emissio n reduction s calculate

d fo r th e project s included i n th

e regulation an

d approve d b y EP A a s par t o f th e SIP . MassDE

P ha s determine

d tha t becaus e ther e ar e n o ai r qualit y benefit s associate

d with th e desig n o f th e Re d Line/Blu e Lin e Connecto r project , remova

l o f thi s desig n requiremen

t wil l no t affec t th e tota l emissio n reduction s achieve

d fro mth e remaining project s included i n th e Transi t regulation . Modification of

existing public process requirement that MassDEPhold

a public meeting on the annual update and

status report

within 60days of

its required

July 1st submittal

date 31 0 CM R7.3 6 (7) , Publi c Proces s Requirements , require s MassDE P t o conduc t apubli c meetin

g o n MassDOT' s projec t

updat e an d status reports , required t o b e submitte

d eac h yea r o n Jul y 1 s t . Becaus e MassDE

P i s required t

o conduc t th e publi c meetin

g withi n 6 0 days , ther

e hav e bee n conflict s wit

h th e Labo r Da y Holida y an d th e en d o f summe r season . Therefore , MassDE P i s proposin g t o lengthe n th e publi c meetin

g deadlin e t o 7 5 day s to avoi dthes

e conflicts . Thi s wil l stil l resul t i n atimel y hearin

g o n MassDO

T update s an d reports , an

d shoul d enabl e mor e stakeholder

s an d member s o f th e publi c t o participate .

Pag e 4Replacement of the term "Executive Office of Transportation (EOT) "

with "Massachusetts Department

of Transportation (MassDOT) " MassDE P i s also proposing to replac e th e ter m"Executive Offic e o f

Transportation (EOT) " with "Massachusett

s Departmen

t o f Transportatio

n (MassDOT) " t

o reflec t Chapte r 2 5 o f th e Acts o f 2009 , "A n Ac t

Modernizin g th

e Transportatio

n System s o f th e Commonwealt

h o f Massachusetts , (a s amende d b y Chapte r 26 o f th e "Act.") . I n Jun

e 2009 , Governo

r Deva l Patric k signe d thi s transportatio

n refor mlegislatio n tha

t integrate d transportatio

n agencie s an d authoritie s int

o MassDOT . A cop y o f th e propose d revision s t

o 31 0 CM R7.3 6 i s included a

s Appendi

x B . IV . AI RQUALIT Y IMPACT S A s note d i n Sectio

n I I above , MassDOT' s ai r qualit y analysi s o f

th e projects included i n th

e 2006 amendment

s o f 31 0 CMR7.3 6 (whic h wa s required pursuan

t t o 31 0 CMR7.3 6 (8) , Determination o f

Ai r Qualit y Emissio n Reductions ) conclude

d tha t th e thre e projects tha

t comprise th

e "preferre d alternatives " woul dachiev e greate r emissio n reduction s tha

n th e initia l transi t projects included i n th

e 199 1 regulation . Se

e discussio

n o f MassDOT' s ai

r qualit y analysi s i n Sectio

n I I above . 31 0 CM R7.3 6 (2)(i ) require s MassDO T t o complet e th e final desig

n o f th e Re d Line/Blu e Line Connector , bu t doe s not requir e tha t th e projec t b e constructed . Therefore , ther e ar e n o ai r qualit y impact s o f removin g th

e projec t a s aregulator

y requirement . V . ECONOMI C IMPACT S I n its Jul y 1,201 1 lette

r to MassDE

P o n th e desig n o f th e Re d Line/Blu e Lin e Connector , MassDO T provide s it s mos

t recen t estimat e o f th e cost s t o complet e fina l desig

n o f th e project . MassDO T projects th

e desig n cost s to b e mor e tha n $5 0 million , a

n increas e wel l abov

e th e $2 9 millio n cos

t estimat e included i n th

e 200 9 Bosto n Metropolita

n Plannin g Organization (MPO ) Regiona l Transportatio

n Plan . Give

n tha t MassDO T an d th e Bosto n MP O hav e not included th

e projec t i n th e RTP , th e projec t i s no t prioritize dfo r

construction . MassDE

P agree s with MassDOT' s assessmen

t tha t spendin g availabl e transportation fundin g t o complet e final desig

n o f th e Re d Line/Blu e Lin e Connecto r i s no t awis e us e o f publi c fund s an

d remova l o f th e projec t fro mth e regulation an

d th e SI P wil l allo w fundin g t

o b e allocated t

o othe r projects an

d programs , includin g th

e thre e alternative project s stil l included i n th e Transi t regulations . VI . IMPAC T O N OTHE RMASSDE P PROGRAM S Air Toxics Ai r toxic s ar e agrou p o f chemica l ai r contaminants , define d b

y EPA , tha

t hav e bee n associate

d wit h wide-rangin

g an d significant

advers e healt h effect s suc

h a s cancer , birt h defects , an

d centra l
Pag e 5nervous syste mimpairments . EP

A regulate s ai

r toxic s unde

r th e Clea n Ai r Act . I n addition , MassDE P control s ai

r toxic s throug

h it s Toxic s Us

e Reductio

n Progra man d othe r program s tha t ar e aime d a t reducin g ozone . Man

y ai r toxic s ar e VOCs , whic h ar

e regulate d a s ozon e precursors . Thes

e propose d amendment

s wil l no t hav e an y effec t o n ai r toxic s emissions . Toxics Use Reduction Toxic s us e reduction i s define d a

s in-plan t o r in-proces s practice s tha

t reduc e o r eliminat e th e us e an d emission

s o f toxi c material s into th

e environment . Implementatio n o f toxic s us e reduction , whe n possible , i s aMassDE

P priority . Th

e propose d regulation s d

o no t regulat e in-plan t o r in

proces s practice s an

d therefor e wil l no t hav e an y effec t o n th e us e an d emissions o f

toxi c materials . VII . AGRICULTURA L IMPACT S Pursuan t to Massachusett

s Genera l Laws , Chapte

r 3 OA , Sectio n 18 , Stat e agencie s mus t evaluat e th e impac t o f propose d program

s o n agricultura

l resource s withi n th

e Commonwealth . Th

e propose d amendment

s d o no t impos e an y requirement

s upo n agricultura

l operations an

d wil l not hav e an y effec t o n agriculture . VIII . IMPAC T O N MASSACHUSETT S MUNICIPALITIE S Pursuan t t o Executiv

e Orde r 145 , Stat e agencie s mus t asses s th e fiscal impac

t o f ne w regulation s o n th e Commonwealth' s municipalities . Th e propose d amendment

s d o no t impos e an y additiona l direct costs , recordkeeping , reporting , o r othe r requirement

s o n loca l governments . IX . MASSACHUSETT S ENVIRONMENTA L POLIC Y AC T (MEPA ) Th e propose d amendment

s ar e exemp t fro mth e "Regulation s Governin

g th e Preparatio

n o f Environmenta

l Impac t Reports, " 30 1 CMR11.00 , i n tha t n o MEP A revie w threshold se

t forth i n 31 0 CM R11.0 3 i s me t o r exceeded . I n addition , thes e propose d amendment

s d o no t reduc e standard s fo r environmenta

l protection , no

r d o the y reduc e opportunitie s fo r

publi c participatio n i n revie w processe

s o r publi c acces s t

o informatio n generate

d o r provided i n accordanc

e wit h th e regulations . (Se

e MEP A review threshold pertaining t o promulgation o f

regulation s a

t 30 1 CMR 11.03(12)) . X . PUBLI C PARTICIPATIO N A s require d b y M.G.L . c . Ill , Sectio

n 142 K an d M.G. L c . 30

A MassDE

P give s notic e an

d provide s th

e opportunit

y t o review backgroun

d an d technica l informatio n a

t leas t 2 1 days prio r

to proposin g th e regulatio n amendment

s a t apubli c hearing . T

o assur e mor e adequat e notic e fo r processin g arul e a s a n amendmen

t t o th e SIP , forma

l notic e wil l b

e issue d 3 0 days befor

e th e

Pag e 6publi c hearing . Th e hearin g wil l b e hel d i n Boston . A cop

y o f th e propose d amendment

s an d thi s backgroun

d documen

t ar e available o

n MassDEP' s websit

e at : http://vww.mass.gOv/dep/service/regulations/newregs.htm#propose d Copies ca n als o b e obtaine d a t MassDEP' s headquarter

s a t On e Winte r Street , Boston . Pleas e sen d comment

s to : Jerome.grafe(g),state.ma.u s o r Jerom e Grafe , MassDEP, On

e Winte r Street , Boston , M A 02108 .

Pag e 7APPENDI X A

Deva l L Parrieft , Governo r TimoOw R Murray , Lt
. Governo r Jeffre y B , Mutlan , Secretar y & CE O Massachusett s Departmen t o f Transportatio n

Jul y 1,201 1 ' Kennet h L . Kimmell , Commissione r Departmen t o f Environmenta

l Protectio n 1 Winte r Stree t Boston , M A 0210 8 Re : Re dLine/Blu e Lin e Connector

, 31 0 CM R7.3 6 2(i ) Dea r Commissione

r Kimmell : 1 a mwritin g t

o reques t a n amendmen

t t o MassDEP'

s Transi t Syste mImprovemen

t regulations , 31 0 CM R7.36 , an d th e Stat e Implementatio

n Pla n (SIP) , specificall

y a s the y relat e t o th e final desig n o f th e Re d Line/Blu e Lin e Connecto r (31 0 CM R7.3 6 2{i)) . A

s se t fort h i n greate r detai l below , th e requiremen

t t o complet e final desig

n o f a n extensio n o f th e Blu e Lin e from Governmen

t Cente r Statio n t o Charles/MG

H Statio n i s asignifican

t an d expensiv e commitmen

t tha t provide s n o actua l ai r qualit y o r transi t benefit s i n an d o f itself . Fundin g fo r transi t project s in th e Commonwealt

h i s exceedingl

y scarc e an d ther e ar e man y competin

g demand s for thos e fund s tha t d o exist. Give

n th e lac k o f transi t o r ai r qualit y benefit s associate d wit h thi s purel

y procedura l requirement

, MassDO T doe s no t believ e tha t spendin g u p to $5 0 millio n t o complet e th e projec t desig n i s awis e us e o f publi c funds . MassDO

T therefor e respectfull

y request s tha t th e Departmen

t o f Environmenta

l Protectio n (MassDEP

) undertak e th e step s necessar y t o amen d th e Transi t Syste mImprovemen

t Regulation

s an dth e SI P t o remov e th e requiremen

t t o complet e final desig

n o f th e Re dLine/Blu e Lin e Connector

. Backgroun

d o n Transit Commitment

s Unde r th e SI P A s yo u know , MassDOT

, i n partnershi

p wit h th e MBTA , ha

s worke d diligentl y ove r th e pas t severa l year s t o implemen

t th e variou s SI P transi t commitments . Thes

e efforts , whic

h ar e describe d i n greate

r detai l i n ou r monthl y SI P State Repor

t update s (availabl

e at ; http://www.mass.gov/massdot/SlP' ) ar e summarize

d below :

• Fairmoun

t Lin e Improvements : Th

e MBT A ha s alread y mad e significan

t upgrade s t o existin g station s an d bridge s an d ha s constructe

d ane w interlockin

g o n th e Fairmourt

t Commute r Rai l Line . Wit

h th e exceptio n o f Blu e Hil l Avenu

e statio n whic h i s stil l i n design , al l remainin

g Fairmoun

t projec t element s ar e currentl y unde r construction .

• 1,00 0 Ne w Parking Spaces : Multiple project s ar e contributin

g t o th e fulfillment

o f thi s commitment

, an d th e anticipate

d completio

n o f th e ne w Wonderlan

d Statio n garag e wil l allo w u s t o mee t th e 1,000-spac

e target.

• Gree n Lin e Extension ! MassDO T i s continuin

g t o advanc e thi s enormousl

y importan

t . an d comple x capita l project, whic

h wil l exten

d ligh t rail servic

e int o previousl

y
Leadin g th e Natio n i n Transportatio n Excellenc e Te n Par k Pla a Soit e 3170
. Boston , M A 02 1 i 6 Tel ; 617JJ73-700O , TDD : 617-973-730 6

www.mass.gov/masscto t

Page 8underserve d area s o f Somervill

e an d Medford . Th

e Commonwealt

h ha s recentl y committe d significan

t fund s t o advanc e th e desig n o f th e projec t an dpurchas e ne w Gree n Lin e vehicle s t o suppor t th e eventua l operatio n o f th e Extension

, In addition , th

e project' s Fina

l Environmenta

l Impac t Repor t receive d aCertificat

e fromth e Secretar y o f Energ y an d Environmenta

l Affair s i n 2010, an

d final federa

l environmenta

l approva l i s expecte d late r thi s year . A n agreemen

t for th e purchas e o f right-of-way neede

d fo r th e projec t wa s als o recentl y complete d wit h Pa n A mRailways . A s require d b y 31 0 CM R7.36(8) , Determinatio

n o f Ai r Qualit y Emissio n Reductions , an

d EP A SI P requirements , MassDO

T determine

d tha t th e Fairmoun

t Lin e Improvements, 1,00

0 Ne w Parkin g Spaces , an d th e Gree n Lin e Extensio n project s woul dachiev e dail y reduction

s o f 43 5 kilogram s o f carbo n monoxid

e (CO) , 1 1 kilogram

s o f nitroge n oxide s (NOx) , an

d 1 7 kilogram

s o f volatil e organi c compound

s (VOC ) i n 2025 , Th

e reduction

s i n emission

s ar e aresul t o f a decreas e in vehicl e miles travele

d becaus e th e project s encourag e trave l b y publi c transi t rathe r tha n b y privat e automobile . Re dLine/Blue Line Connecto r A s note d above , th e regulatio

n an d SI P requir e MassDO

T t o complet e final desig

n o f a n extensio n o f th e Blu e Lin e fromGovernmen

t Cente r Statio n to Charles/MG

H Station . Unlik

e th e othe r transi t projec t requirement

s i n th e regulatio n an d SIP, however

, ther e i s n o specifi c requiremen

t o r obligatio n t o construc t th e Re d Line/Blu

e Lin e Connector

. A s aresult, th

e commitmen

t to desig n thi s project, b

y itself , provide s n o ai r qualit y benefi t t o th e Bosto n Metropolita

n region . In fact, th

e ai r qualit y modelin g fo r th e regulatio n an d SI P revision , a

s approve d b y EP A i n 2008 , didno

t includ e o r assig n an y ai r qualit y benefit s t o th e project

1 . MassDO T has , nonetheless, mad

e agoo d fait h effor t t o mee t th e commitmen

t fo r the'desig n o f th e Re d Line/Blu e Lin e Connector

. MassDO T ha s spen t clos e t o $ 3 millio n ove

r th e pas t tw o year s t o advanc e conceptua

l desig n o f th e projec t an d complet e th e Draf t Environmenta

l Impac t Repor t (DEIR) . This effor

t wa s supporte d b y th e inpu t o f aworkin g grou p consistin

g o f individual s representin

g institutions , neighborhoo

d associations , busines

s groups , advocates , Cit

y o f Bosto n agencies , an

d stat e an d loca l electe d officials . Thi s grou

p me t o n abi-monthl

y basi s an d thei r inpu t wa s i n additio

n t o tha t receive d i n tw o publi c meeting s hel d o n th e project . I n additio n t o th e lac k o f tangibl e ai r qualit y benefit s associate d wit h th e Re d Line/Blu

e Lin e Connecto r requirement

, final desig

n o f th e projec t come s a t aconsiderabl

e financial cos

t (mos t recentl y estimate d a t mor e tha n $5 0 million) . Give

n th e man y othe r competin g need s fo r ou r limitedtransportatio

n funding , th

e Commonwealt

h an d th e Bosto n Regio n Metropolita

n Plannin g Organizatio

n hav e no t include d th e projec t i n th e Regiona l Transportatio

n Pla n (RTP) , whic h lists project

s prioritizedfor

constructio

n i n th e nex t 2 5 years . Therefore, committin g $5 0

' EP A issue d final approva

l o f th e Slat e Implementatio

n Pla n for Transi t Syste mImprovement

s o n M y 31 » 200 8 includin g approva l o f ai r qualit y benefit s assigne d to th e Gree n Lin e Extensio n to Unio n Squar e an dMedfor d Hillside, Fairmoun

t Lin e Improvements

, an d1,00 0 par k an d ride parkin

g spaces . Pag e 2

Pag e 9millio n i n transportatio n fundin g t

o complet

e th e desig n proces s - a

s wel l a s dedicatin

g additiona l resource s t o complet e th e environmenta

l revie w an d pennittin g processe

s - fo r a projec t tha t i s extremel

y unlikely t

o b e buil t simpl y canno t b e justified . Sinc e environmenta

l revie w an d conceptua

l desig n bega n fo r th e Connecto

r i n 2009 , MassDO

T ha s determine

d tha t th e ultimat e constructio

n cost s fo r th e project wil l fa r outstri p th e cos t projection s i n plac

e a t th e tim e tha t th e SI P regulatio

n wa s promulgated : $29

0 millio n a

t th e tim e o f th e SI P regulatio

n versu s th e curren t bes t estimat e o f $74 8 millio n (escalate

d t o yea r o f expenditure) , MassDO

T ha s alread y spen t $ 3 millio n t o advanc

e th e project throug h environmenta

l revie w an d conceptua

l design , bu

t th e $5 0 millio n estimat

e t o complet e final desig n fa r exceed s th e $2 9 millio n last

identifie di n th

e Bosto n MP O 200 9 Regiona l RTP . Desig n cost s ar e typically estimate

d a t 10 % o f tota l constructio

n costs , s o th e $2 9 millio n estimat e fo r final desig

n a t th e tim e o f th e ne w SI P regulatio

n wa s base d o n a$29 0 millio n estimate d constructio

n cost , whic h wa s escalate d fromth e $23 7 millio n project

cos t carrie d i n th e 200 4 Bosto n MP O RTP. . Th

e dramati c increas e i n projecte

d cost s fromth e 200 4 RT P t o th e $74 8 millio n figur

e include d i n th e 201 0 DEI

Ri s attributabl

e t o anumbe

r o f factors : Prio r estimate s relie do

n decades-ol

d analysis . Th

e Red/Blu e Connecto

r project ha d bee n include d i n severa

l iteration s o f

th e Bosto n MP O RT P an d th e MBTA' s Progra

mfo r Mass Transportatio

n (PMT) . Althoug

h eac h o f thes e plannin g effort s assigne

d a n estimate

d constructio

n cos t t o th e project , thes

e estimate s wer e not base d on ne w analyse s o f th e project . Instead, th e RT P an d PMT estimate

s simpl y re-use d th e constructio

n cos t estimat e fro mth e las t rigorous analysis o f

th e projec t {th e 198 6 MBT A Bowdoin/Charle s Connecto r Projec t report ) an d escalate d thos e cost s t o m e RT P o r PM T year . Th e Red/Blu

e DEI Ris , therefore , th

e firs t substantiv e analysis o f

cost s fo r th e Red/Blu e Connecto

r project i n mor e tha n 2 0 years . Ne w informatio n gathered durin g conceptua l desig n disprove d ol d assumptions . Th e conceptua l desig n wor k oversee n b y MassDO

T startin g i n 200 9 forced MassDO

T an d th e consultan t tea mto revisit

previou s assumptions . A n exampl e i s th e preferre d tunnelin g method . Previous cos

t estimate s ha d assume d 'cut an d cover ' construction , which i s typically les s expensiv e tha n i s th e us e o f aturme l boring machin

e (TBM) . However

, du e t o th e densit y an d complexit y o f th e utility network

s beneat h Cambridg

e Street , i t wa s determine

d b y MassDO

T durin g thi s mos

t recen t plannin g proces s tha

t cu t an d cove r constructio

n i n thi s environmen

t woul dactuall y be a t leas t a s expensiv

e a s aTB M approach . A s aresult, th e saving s resulting fromacu t an d cove r approac h envisione

d b y pas t analyse s o f th e projec t wouldlikel y no

t b e realized . Budgetin g fo r

contingenc

y i s no w much mor

e conservative . I n th

e lat e 1980s , th

e MBTA

develope d cos t estimate s fo r th e project include d a2 0 percen t contingency . Th

e DB1 Rcos

t estimate , which i s informe dby tw o mor e decade s o f project management

, th e experienc

e from th e Centra l Artery/Tunne

l project , an

d guidanc e fromth

e Federa l Transi t Administration , include s amor

e conservativ

e 40 percen

t contingency . MassDO

T believe s tha

t a4 0 percen t

Pag e 3

Pag e 1 0contingenc y i s appropriat

e give n th e conceptua

l stag e o f design , an

d th e uncertaintie s inheren

t i n aproject involvin g tunnelin g unde

r adens e an d histori c urba

n environment . DEI Rcos t estimat e reflect s ane

w projec t scope . Th

e 1980 s analysi s o f

th e Bowdoin/Charles Connecto r di dno t includ e projec t component

s tha t wer e determine

d t o be essentia

l by MassDO

T i n 2010 . Fo

r example , th

e 1986 analysi s assume

d tha t Bowdoi n Statio n woul dbe retaine

d an d tha t th e extensio n woul dmak

e us e o f tha t station' s existing tai l tracks . However, th e MBT A ha

s since determine

d tha t i t canno t allo w revenu

e service - th

e operatio n o f transi t vehicle s with passenger s o n boar d - o n th e Bowdoi n loop . Thi s i s du

e t o th e challenges i n safel

y evacuatin

g passenger s with disabilitie s fromatrain tha t migh t becom e disable d o n thi s tight

curve . A s a result , whethe

r o r no t Bowdoi n Statio

n i s retaine

d i n th e project , th

e tunne l constructio

n wil l no w exten d severa l hundre d mor e fee t t o th e edg e o f Governmen

t Cente r Station . Desig n and permittin g don

e now wil l nee

d to be duplicate d later . Finally , becaus e th e RT P doe s no t includ e fundin g fo r

constructio

n o f thi s project

a t an y tim e i n th e nex t 2 5 years , i t i s fai r t o expec t tha t th e projec t wil l no t actuall y b e constructe

d during tha

t tim e perio d eve

n i f th e fina l desig n i s completed . A s aresult , th e final EI Ran d final desig

n document

s would nee

d t o b e substantially , i f

no t completely , revise

d an d update d to reflec t

change d condition s an

d requirement

s a t th e time tha t th e project wa s ultimately advance

d fo r construction . Ther

e i s n o poin t i n spendin

g scarc e publi c transi

t fund s t o develo p document

s tha t w e kno w wil l nee

d t o b e supersede d later .
A t som e point , aproject' s cost

s rise t o th e leve l wher e th e pursui t o f wha t wa s onc e asoun d investmen t become s simply unaffordable . I , therefore , respectfully submi t thi s reques

t fo r you r consideratio

n o f removing th

e final desig

n o f thi s project , which by itsel f wil l generat

e n o air qualit y benefits , fromth

e Transi t Syste mImprovemen

t Regulations an

d th e SIP . Unles s MassDE P remove s thi s requirement

, MassDO T "wil l continu

e t o b e require d t o d o th e desig n o r ris k bein g i n violatio n o f

th e regulation an

d th e SIP . Ilook forwar d t o you r response, an

d w e wil l wor

k wit h yo u an d you r staf f t o address an

y questions o

r issue s tha t aris e fromou

r request. I f

yo u hav e an y questions , pleas

e d o no t hesitat e t o contac t m e a t 617-973-784

4 o r david.mohler@state.ma.us . Conclusio n

Sincerely , DavidJ.jMohle

r Executive-Directo

r Offic e o f Transportatio

n Plannin g cc : Re d Line/Blue Lin e Connecto r Workin g Grou

p

Pag e 4

Pag e 1 1