MEETING AIR QUALITY GOALS IN TRANSPORTATION
Massachusetts Department of Transportation (MassDOT) and the Metropolitan Planning Organizations (MPOs)
August 2015
This report documents recent progress made by MassDOT and the MPOs in meeting air quality goals established through state and (currently former) federal regulations applicable to Massachusetts. It consists of two parts: 1) A “progress report” that documents future carbon dioxide (CO2) emission estimates from the transportation sector as part of meeting greenhouse gas (GHG) reduction goals established through the Commonwealth’s Global Warming Solutions Act (GWSA), and 2) An informational analysis of future vehicle emissions of ozone precursor pollutants – formerly a federal “air quality conformity” requirement for areas of Massachusetts.
The Global Warming Solutions Act of 2008 requires statewide reductions in greenhouse gas (CO2) emissions of 25 percent below 1990 levels by the year 2020, and 80 percent below 1990 levels by 2050. As part of the GWSA, the Executive Office of Energy and Environmental Affairs developed the Massachusetts Clean Energy and Climate Plan (CECP), which outlines programs to attain the 25 percent reduction by 2020 – including a 7.6 percent reduction that would be attributed to the transportation sector.
The Commonwealth’s thirteen metropolitan planning organizations (MPOs) are
integrally involved in helping to achieve greenhouse gas reductions mandated under the GWSA. The MPOs work closely with the Massachusetts Department of Transportation (MassDOT) and other involved agencies to develop common transportation goals, policies, and projects that would help to reduce GHG emission levels statewide, and meet the specific requirements of the GWSA regulation – Global Warming Solutions
Act Requirements for the Transportation Sector and the Massachusetts Department of Transportation (310 CMR 60.05). The purpose of this regulation is to assist the Commonwealth in achieving their adopted GHG emission reduction goals by:
Meeting the requirements of this regulation is being achieved through the transportation goals and policies contained in the 2016 regional transportation plans (RTPs), the major projects planned in the RTPs, and the mix of new transportation projects that are programmed and implemented through the transportation improvement program (TIPs).
The GHG tracking and evaluation processes enable the MPOs and MassDOT to identify the anticipated GHG impacts of the planned and programmed projects, and also to use GHG impacts as a criterion in prioritizing transportation projects. This approach is consistent with the greenhouse gas reduction policies of promoting healthy
transportation modes through prioritizing and programming an appropriate balance of roadway, transit, bicycle and pedestrian investments; as well as supporting smart growth development patterns through the creation of a balanced multi-modal transportation system. All of the MPOs and MassDOT are working toward reducing greenhouse gases with “sustainable” transportation plans, actions, and strategies that include (but are not limited to):
MassDOT coordinated with MPOs and regional planning agency (RPA) staffs on the implementation of GHG tracking and evaluation in development of each MPO’s 2012 RTPs, which were adopted in September 2011. This collaboration has continued for the MPO’s 2016 RTPs and 2016-19 TIPs. Working together, MassDOT and the MPOs have attained the following milestones:
MassDOT’s statewide estimates of CO2 emissions resulting from the collective list of all recommended projects in all the Massachusetts RTPs combined are presented below. Emissions have been estimated using the new (2014) MOVES model, and also incorporate the latest planning assumptions including updated socio-economic projections for the Commonwealth:
Massachusetts Statewide CO2 Emissions Estimates
(all emissions in tons per summer day)
Year |
CO2 Action Emissions |
CO2 Base Emissions |
Difference (Action – Base) |
2012
2020
2030
2040 |
185,324.3
138,611.3
89,631.6
70,010.7 |
185,324.3
138,638.1
89,645.3
70,035.5 |
n/a
-26.7
-13.7
-24.8 |
This analysis measures only projects that are included in the travel demand models. Many other types of projects that cannot be accounted for in the model (such as bicycle and pedestrian facilities, shuttle services, intersection improvements, etc.), are covered in the regional TIPs with either “qualitative” assessments of likely CO2 change, or actual quantitative estimates listed for each project.
As shown above, collectively, all the projects in the RTPs in the 2020 Action scenario provide a statewide reduction of over 26 tons of CO2 per day compared to the base case. The 2040 Action scenario estimates a reduction of nearly 25 tons of CO2 emissions compared to the base case.
These results demonstrate that the transportation sector is expected to make positive progress in meeting the GHG reduction targets and complying with the requirements of the GWSA. MassDOT and the MPOs will continue to advocate for steps needed to accomplish the Commonwealth’s long-term goals for greenhouse gas reductions.
The 1970 Clean Air Act defined a one-hour national ambient air-quality standard (NAAQS) for ground-level ozone. The 1990 Clean Air Act Amendments further classified degrees of nonattainment of the one-hour standard based on the severity of monitored levels of the pollutant. The entire Commonwealth of Massachusetts was classified as being in serious nonattainment for the one-hour ozone standard, with a required attainment date of 1999; this was later extended first to 2003, then to 2007.
In 1997, the U.S. Environmental Protection Agency (EPA) proposed a new, eight-hour ozone NAAQS to replace the one-hour standard, effective June 15, 2005. The new standard was challenged in court, and after a lengthy legal battle, the courts upheld the standard, which was finalized in June 2004. The eight-hour standard was 0.08 parts per million (ppm), averaged over eight hours and not to be exceeded more than once per year. Nonattainment areas were again further classified based on the severity of eight- hour values. Massachusetts as a whole was classified as being in moderate nonattainment for the eight-hour standard, but it was separated into two nonattainment areas—Eastern Massachusetts and Western Massachusetts. Both nonattainment areas were required to reduce its emissions of VOCs and NOx to achieve attainment of the eight- hour ozone NAAQS by 2009.
In March 2008, EPA published revisions to the eight-hour ozone NAAQS that established a level of 0.075 ppm (March 27, 2008; 73 FR 16483). After reviewing data from Massachusetts monitoring stations, the EPA sent a letter on December 16, 2011, proposing that only Dukes County would be designated as being in nonattainment for the new, proposed 0.075 ozone standard. Massachusetts concurred with these findings.
On May 21, 2012, the final rule (77 FR 30088) was published in the Federal Register, defining the 2008 NAAQS at 0.075 ppm, the standard that was promulgated in March
2008. A second rule (77 FR 30160), published on May 21, 2012, revoked the 1997 ozone NAAQS; the rule was to become effective one year after the 2008 NAAQS became effective (July 20, 2012). Also on May 21, 2012, the air-quality designation areas for the 2008 NAAQS were published in the Federal Register. In this Federal Register, the only area in Massachusetts that was designated as being in nonattainment for ozone was Dukes County. All other counties were classified as unclassifiable/ attainment. Therefore, the 13 MPOs are not required to perform a conformity determination for ozone for their LRTP.
All the Massachusetts MPOs and MassDOT continue to meet the requirements of air quality conformity according to the Code of Federal Regulations, and as evaluated through inter-agency consultation. Specifically, on March 6, 2015, (80 FR 12264,
effective April 6, 2015) EPA published the Final Rulemaking, “Implementation of the
2008 National Ambient Air Quality Standards (NAAQS) for Ozone: State Implementation Plan Requirements; Final Rule.” This rulemaking removed transportation conformity to the 1997 Ozone NAAQS (the standard referenced by the Conservation Law Foundation and the subject of a December 23, 2014 DC Circuit Court decision). Link to Final EPA Rulemaking: http://www.gpo.gov/fdsys/pkg/FR-2015-03-06/pdf/2015-04012.pdf
Since the LRTPs have been developed, reviewed, and approved after April 6, 2015, air quality conformity determinations to the 1997 Ozone NAAQS are no longer required, as those standards and all associated area designations have been permanently replaced by the 2008 NAAQS, which (with actually a stricter level of allowable ozone concentration than the 1997 standards) no longer designate Massachusetts as a non- attainment area(s) for ozone except for Dukes County as discussed above.
Although this document reports on statewide ozone precursor emissions, reporting on another criteria pollutant, carbon monoxide (CO) is still federally required for some MPOs in Massachusetts. The cities of Boston, Cambridge, Chelsea, Everett, Malden, Medford, Quincy, Revere, and Somerville within the Boston Region MPO were classified as being in attainment for CO emissions. As part of the Boston MPO LRTP, an air-quality conformity analysis is still completed for these communities, as they have
a carbon monoxide maintenance plan approved as part of the SIP. This information can be found in Chapter 8 of Charting Progress to 2040, the Boston MPO’s current LRTP.
The Lowell, Waltham, Worcester and Springfield carbon monoxide areas are classified attainment with a limited maintenance plan in place. No regional air quality analysis is required in limited maintenance plan areas as emissions may be treated as essentially not constraining for the length of the maintenance period because it is unreasonable to expect that such areas will experience so much growth in that period that a violation of the carbon monoxide NAAQS would result. Therefore, in areas with approved limited maintenance plans, Federal actions requiring conformity determinations under the transportation conformity rule are considered to satisfy the “budget test.” All other transportation conformity requirements under 40 CFR 93.109(b) continue to apply in limited maintenance areas, including project level conformity determinations based on carbon monoxide hot spot analyses under 40 CFR 93.116.
The ozone analysis was prepared using the following criteria:
Only “regionally significant” projects are included in the travel-demand modeling. Regionally significant projects are defined as follows:
A transportation project (other than an exempt project) that is on a facility that serves regional transportation needs (such as access to and from the area outside of the MPO region; major activity centers in the region; major planned developments, such as new retail malls and sport complexes; and transportation terminals (as well as most terminals themselves) and would be included in the modeling of a metropolitan area’s transportation network, including at a minimum all principal arterial highways and all fixed-guideway transit facilities that offer an alternative to regional highway travel.
The following table lists the regionally significant projects proposed in the LRTPs in the
Commonwealth:
Regionally Significant Projects Included in the Travel Demand Models
Analysis Year |
Community |
|
Project Description |
2020 |
Bedford and Billerica |
Middlesex Turnpike Improvements, From Crosby Drive North to Manning Road, Phase III |
|
2020 |
Newton and Needham |
Reconstruction of Highland Avenue, Needham Street and Charles River Bridge, from Webster Street to Route 9 |
|
2020 |
Weymouth and Abington |
Reconstruction and Widening on Route 18 (Main Street) From Highland Place to Route 139 |
|
2020 |
Woburn |
Reconstruction of Montvale Avenue, from I-93 Interchange to Central Street |
|
2020 |
Woburn |
Bridge Replacement, New Boston Street over MBTA |
|
2030 |
Boston |
Reconstruction of Rutherford Avenue, from City Square to Sullivan Square |
|
2030 |
Framingham |
Intersection Improvements at Route 126 and Route 135/MBTA and CSX Railroad |
|
2030 |
Lexington |
Route 4/225 (Bedford Street) and Hartwell Avenue |
|
2030 |
Natick |
Bridge Replacement, Route 27 (North Main St.) over Route 9 (Worcester St.) and Interchange Improvements |
|
2030 |
Somerville and Medford |
Green Line Extension Project (Phase 2), College Avenue to Mystic Valley Parkway/Route 16 |
|
2030 |
Somerville |
McGrath Boulevard Project |
|
2040 |
Barnstable |
Hyannis Access Improvements |
|
2030 |
Westborough |
Route 9 Improvements |
|
2030 |
Oxford |
Route 20 capacity improvement |
|
2030 |
Millbury |
Turnpike/Route 146 int. improve. |
|
2030 |
Worcester |
I-290 Bridge Expansion |
|
2030 |
North Andover |
Route 114 Reconstruction |
|
2030 |
Athol |
Route 2 Interchange @ S. Athol Rd |
|
2040 |
Westford |
Route 110 widening |
|
2040 |
Tewksbury, Andover |
Lowell Junction Interchange |
|
2020 |
Abington, Weymouth |
Route 18 Widening (funded in Boston Region) |
|
2020 |
Wilbraham |
Boston Road Reconstruction |
|
2020 |
Hadley |
Route 9 Phase 1 |
|
2030 |
Hadley |
Route 9 Phase 2 |
|
2030 |
Hadley |
Route 9 Phase 3 |
|
2030 |
Middleborough |
Routes 44/28/18 Rotary |
|
2040 |
Taunton |
Routes 24 & 140 Improvements |
|
2040 |
Fall River |
Route 79 Blvd |
|
Although Massachusetts is currently in conformity for ozone, this informational analysis was done in relation to the State Implementation Plan mobile-source ozone emission projections that were approved in March 2008 for the revoked 1997 eight-hour NAAQS for VOC and NOx. The VOC mobile-source emission budget for 2009 for the Eastern Massachusetts Ozone Nonattainment Area was set at 63.50 tons per summer day, and at 10.73 tons per summer day for the Western Massachusetts Ozone Nonattainment Area. The NOx mobile-source emission budget for 2009 for the Eastern Massachusetts Ozone Nonattainment Area was set at 174.96 tons per summer day, and at 27.73 tons per summer day for the Western Massachusetts Ozone Nonattainment Area.
The Massachusetts Department of Transportation, Office of Transportation Planning (MassDOT Planning) estimated the results for the Eastern and Western Massachusetts Ozone Nonattainment Areas using the Statewide and Boston Region MPO regional travel demand model sets, based on the latest planning assumptions (as outlined in this document).
MassDOT OTP conducted an air-quality analysis for the Commonwealth’s 13 MPO’s LRTP. The test used in this analysis was to show that the LRTPs are consistent with the emission budgets set for the revoked 1997 eight-hour ozone NAAQS as described above. The results are shown in the tables below. They include emissions from regionally significant projects as derived from the travel demand models and off-model emissions from commuter rail, commuter boat, and buses:
VOC Emissions Estimates
Eastern Massachusetts Ozone Nonattainment Area
(all emissions in tons per summer day: tpsd)
Year |
VOC Action Emissions |
VOC Budget |
Difference (Action – Budget) |
2012
2020
2030
2040 |
30.56
11.25
7.06
5.79 |
n/a
63.50
63.50
63.50 |
n/a
-52.25
-56.44
-57.71 |
NOx Emissions Estimates
Eastern Massachusetts Ozone Nonattainment Area (tpsd)
Year |
NOx Action Emissions |
NOx Budget |
Difference (Action – Budget) |
2012
2020
2030
2040 |
116.97
36.37
17.81
13.36 |
n/a
174.96
174.96
174.96 |
n/a
-138.59
-157.15
-161.60 |
VOC Emissions Estimates
Western Massachusetts Ozone Nonattainment Area (tpsd)
Year |
VOC Action Emissions |
VOC Budget |
Difference (Action – Budget) |
2012
2020
2030
2040 |
3.61
1.58
0.89
0.76 |
n/a
10.73
10.73
10.73 |
n/a
-9.15
-9.84
-9.97 |
NOx Emissions Estimates
Western Massachusetts Ozone Nonattainment Area (tpsd)
Year |
NOx Action Emissions |
NOx Budget |
Difference (Action – Budget) |
2012
2020
2030
2040 |
13.10
4.36
1.86
1.42 |
n/a
27.73
27.73
27.73 |
n/a
-23.37
-25.87
-26.31 |
Based on the preceding estimates, MassDOT Planning has found that the combined emission levels from transportation projects contained in the 2016 Regional Transportation Plans and 2016-2019 Transportation Improvement Programs – for both former ozone nonattainment areas in Massachusetts – would demonstrate conformity with the SIP, the Clean Air Act, and the EPA conformity regulations (40 CFR part 51).
Through the interagency air quality consultation process (involving U.S. Department of Transportation, EPA, DEP, MassDOT, and the MPOs) the latest EPA rulemakings, and the referenced legislative background and legal issues, currently applicable ozone standards, area designations, and requirements were all reviewed.
The ozone analysis outlined in this section demonstrates that the implementation of the
2016 RTPs and TIPs meets the “budget test,” and would therefore satisfy the air quality ozone conformity criteria, and is consistent with the air quality goals in the Massachusetts SIP.