The
Citizens’
Plan
AN
ALTERNATIVE
TO THE
PENNSYLVANIA
TURNPIKE
COMMISSION’S
PLAN TO
COMPLETE THE
MON-FAYETTE
TOLL ROAD
Citizens for Pennsylvania’s Future
425 Sixth Ave., Suite 2770
Pittsburgh, PA 15219
412-258-6680 / 888-895-4843 / 412-258-6685 fax
www.pennfuture.org
SPONSORING ORGANIZATIONS
Citizens for Pennsylvania’s Future (PennFuture)
Citizens Against New Toll Roads (CANTR)
Ground Zero
Group Against Smog and Pollution (GASP)
Hazelwood Initiative
Oakland Community Council
Preservation Pittsburgh
Sierra Club, Allegheny Chapter
PLAN DEVELOPMENT COMMITTEE
Ray Reaves
Rob Pfaffmann
Joan Miles
David Lewis
Jonathan Kline
Erik Hokanson
Marc Ford
Kathy Boykowycz
TRANSPORTATION CONSULTANT
Walter Kulash
Glatting Jackson Kercher Anglin Lopez Rinehart, Inc.
FINANCIAL CONSULTANT
Anne Canby
Our thanks to The Heinz Endowments for their generous support of this project.
CONTENTS
3
Executive Summary
6
The Goal: Meeting the Needs of the Mon Valley and the Region
8
The Details of the Citizens’ Plan
13
The Citizens’ Plan: Serving the Needs of the Whole Community
24
The Citizens’ Plan: Putting Public Money to Work for the Public
31
Bibliography
1
2
Executive Summary
In January 2002, Citizens for Pennsylvania’s Future (PennFuture) assembled a group of
national and local experts — engineers, architects and planners — and interested
citizens to begin work on an alternative to the Mon-Fayette toll road. After touring the
Mon Valley, its major arterial roads, town centers and former industrial sites
(brownfields), the group gathered to brainstorm possible solutions that would meet the
region’s transportation and traffic needs, revitalize brownfields and strengthen communities, while avoiding the harmful environmental and economic impacts that would be
caused by the toll road.
A plan began to take shape. This plan draws on the conclusions of a number of published
regional transportation and land use studies. A draft was presented to various local
officials and community groups to obtain feedback and fine-tune the plan. Those efforts
are ongoing and this report, while still a work-in-progress, contains the fruits of this
collaborative effort.
This collaborative — and the development of the Citizens’ Plan — are needed to rectify
the Pennsylvania Turnpike Commission’s failure to adequately consider alternatives,
despite the requirement under federal law (the National Environmental Policy Act or
NEPA) that the Turnpike must consider alternatives to its proposed toll road plan. The
Turnpike’s Draft Environmental Impact Statement (DEIS) on the toll road fails to adequately consider alternatives even though the Federal Highway Administration states
that the DEIS “must discuss a range of reasonable alternatives.” And despite significant
requests from the City of Pittsburgh and local citizens that a combined alternative
including public transit and upgraded existing roads be included, the Turnpike dropped all
non-toll road alternatives six years ago with scant consideration, submitting a DEIS based
only on tolled, limited access highways.
The Citizens’ Plan provides an analysis of the alternatives the Turnpike refused
to adequately consider and proposes to meet the combined transportation
needs of the Mon Valley through three major components:
A 62-mile network of urban boulevards within the Mon Valley that will enhance safety
and create incentives for economic redevelopment of existing town centers and
brownfields;
I
Improved connections to interstate highways which will increase the mobility of
vehicles that transport goods from the Valley to outside markets; and
I
Three major new transit investments that will reduce traffic congestion and increase
real estate values in the Mon Valley.
I
The benefits of this plan over the toll road include:
Substantial investment in the deteriorated roads and infrastructure of Mon Valley
communities;
I
Direct connections to and among brownfields redevelopment sites and existing urban
centers, providing better incentives for economic development;
I
3
Executive Summary
A balance in achieving improved mobility and safety and enhanced access to Mon
Valley communities;
I
Better traffic management by providing commuters with more choices in reaching
employment and education centers;
I
I
Increased real estate values within established communities;
I
Less sprawl, thereby preserving the region’s forests, streams, hillsides and farms; and
A better balance between the potential for economic development of the riverfronts
and sustaining their recreational value.
I
The total costs of the road improvement portion of the Citizens’ Plan are estimated to be
nearly $1.2 billion, less than two-thirds of the estimated toll road costs. If the toll road
were built from Route 51 to I-376, the upgrades to major arterial roads contemplated by
4
PA TURNPIKE
TOLL ROAD PLAN
NB
BF
BF
BF
BF
the Citizens’ Plan would need to be undertaken anyway. However, the $1.9 billion toll
road estimate fails to account for any such costs.
BF RIDC
Transit improvements consisting of new light rail, two transit extensions and multi-use
terminals are estimated at an additional $1.5 billion. While total costs of the Citizens’
Plan exceed the current estimated cost to complete the toll road, our plan is far more
comprehensive, provides significantly more value to the region, and is thereby more cost
effective than the toll road.
BF
BF
BF
M
on
Fa
ye
tt
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TO
LL
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A
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Funding for the Citizens’ Plan is proposed to come from a variety of sources including
federal, state and local programs, bonding and value-capture financing.
TRANSPORTATION TYPE KEY:
Roads, Boulevards & Highways
Mass Transit
THE CITIZENS’
PLAN ALTERNATIVE TRANSPORTATION PLAN
Proposed Turnpike Path
NEW DEDICATED TRANSIT System Extension
Existing Turnpike already built
EXISTING TRANSIT
NEW Urban Boulevard 4 Lane Road
NB
UPGRADED EXISTING Boulevard or Arterial
UB
Transit
Line
T
FOR THE MON VALLEY & PITTSBURGH
Existing Highway, Boulevard or Arterial
UB
Bike Trails
MM
Multimodal Center
See Drawing of typical
Design
Population
& Employment
Center
Existing Industrial or
Brownfield Site
PENN FUTURE COMMITTEE FOR AN ALTERNATIVE TO THE MON-FAYETTE TOLL ROAD
PITTSBURGH
MM
Urban Boulevard
See drawing of typical
Design
OAKLAND
MM
T
Squirrel Hill
South Side
Works
Swissvale
T
N
ew
T
ho
ps
m
’s
on
un
R
B
r
va
le
ou
d
MONROEVILLE
NB
Hazelwood
BF
Turtle Creek
Homestead
Braddock
BF
Kennywood
West Mifflin
BF
MM
MM
NEW
BRIDGE
UB
BF
T
UB
Duquesne
Lebanon Church
Boulevard
T
CENTURY III:
NEW TOWN
CTR.
COUNTY
AIRPORT
UB
Bettis
Trailhead
BF RIDC
McKeesport
MM
BF
BF
UB
FUTURE
TRANSIT
NB
Clairton
Fa
ye
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TO
LL
R
O
A
D
MM
BF
0 km
N
2 km
3 km
M
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1 km
v2.1 June 10.02
TRANSPORTATION TYPE KEY:
5
The Goal: Meeting the Needs of the
Mon Valley and the Region
The goal of the Citizens’ Plan is to meet the transportation needs of the Mon-Valley in
ways that promote the economic vitality of existing communities, the revitalization of
brownfields and the conservation of natural resources.
The three major transportation needs in the Mon Valley are:
Better road connections among Mon Valley town centers and brownfields to
stimulate economic investment and community revitalization
I
Mon Valley communities that were prosperous during the heyday of steel-making have
experienced severe economic decline. They are home to many abandoned steel mills and
other shuttered factories, known as brownfields. Loss of industry led to a corresponding
decline in other local businesses as unemployment rose and families moved to seek jobs
elsewhere. Town centers that were once thriving commercial centers are now filled with
empty storefronts.
The non-industrial sector of the economy is projected to be the fastest-growing source of
new employment region-wide in the next 23 years, which is currently under-represented
in the Mon Valley.1 The brownfields and existing town centers are promising sites for
such growth, but they must be well-connected to their surrounding local market areas.
Existing roads throughout the Valley are narrow, outdated and often dangerous. The lack
of a well-functioning transportation network within the Valley is one of the factors that
hinders these communities from attracting new commercial investment.
1
SPC projects a growth of 129,000 jobs (11
percent of existing) in the “non-industrial”
category over the 2002-2025 period. Nonindustrial employment can be classified into
either:
Improved access to the existing interstate highway system for local businesses serving markets outside the Mon Valley
White collar jobs: management, research,
information systems, finance, insurance,
real estate, administrative support and so
forth, or
In order to attract new businesses that serve markets outside the Mon Valley,
brownfields, town centers, and multi-use terminals must be connected to the existing
interstate highway system. In addition, existing manufacturers in the Mon Valley have
indicated that their businesses would be more profitable if highway access were improved. The major connector roads or arterials are now inadequate, indirect and in
deteriorated condition.
Community serving jobs: primary health
care (clinic, family practice, dentist, etc.),
education (schools, pre-school, day care,
outreach branches, etc.), neighborhood
services (banks, residential real estate, hair
stylists, auto servicing, etc.), local
entertainment (restaurant, tavern, movies,
etc.) and community institutions (churches,
libraries, etc.).
I
Superior commuting access to employment and education centers to relieve
traffic congestion and further enhance economic recovery in the Mon Valley
I
When Mon Valley communities were self-contained and self-sustaining, jobs were
plentiful near where people lived. Now the largest employment and education centers in
the region are located in downtown Pittsburgh and Oakland, but both highway and public
transit service from the Valley is slow and inadequate. The proximity of the Mon Valley to
downtown Pittsburgh, the available quality housing in its communities, and the appealing
natural setting of the Valley are all factors that should make the Valley attractive as a
place to live for people working outside the Valley. This appeal, however, is offset by the
lack of premium transit service (busways or light rail transit) in the Valley. Moreover,
commuters from the eastern suburbs have few transportation choices, contributing to
long delays on the Parkway East. Poor transit connections to these areas have exacerbated traffic problems and economic stagnation.
6
The Turnpike’s Plan proposes to address all three of these transportation needs with a
single solution: 24 miles of tolled, limited access highway.
The Citizens’ Plan proposes to meet the transportation needs of the Mon Valley
through three major components:
Mon-Fayette toll road at Large, PA
1. A 62-mile network of urban boulevards within the Mon Valley that will
create incentives for economic redevelopment of existing town centers and
brownfields. Our plan would rebuild 52 miles of the existing network of arterial roads
as a network of urban boulevards. In addition, nearly 10 miles of new roads would be
built, also to urban boulevard standards (four-lane divided roads with left-turn lanes at
intersections, upgraded traffic signals, refurbished sidewalks and street lighting). This
would provide not only convenient routes among local communities, but opportunities
to improve local infrastructure such as sewer and water lines, problem intersections,
poorly planned entrances and exits to roadside businesses, and inadequate street
lighting. Together, these investments would improve traffic flow and safety and make
these communities attractive to new investment. By and large, the toll road would
either bypass these communities or cut them in half, in some cases with a 60-foot high
flyover, leaving existing connector roads in the same decaying state as they are in today.
2. Improved connections to interstate highways that will increase the
mobility of vehicles which transport goods from the Valley to outside markets.
The road network under the Citizens’ Plan will carry traffic bound for intrastate or
interstate travel on major highways such as I-76, I-70 and I-79. Our plan would widen
roads connecting to these interstates, correct problem intersections, add turn lanes and
improve overall efficiency. Since our alternative upgrades roads directly adjacent to
most of the Mon Valley’s redevelopment sites, businesses locating there would have
direct access to these improved connections to the interstate highway system. Under
the Turnpike’s Plan, most brownfields and town centers will be bypassed. Vehicles
originating at these locations will still need to travel several miles on inferior local
roads before reaching one of the few interchanges to the toll road in the Mon Valley.
2
See, for example, Easing the Burden: A
Companion Analysis of the Texas Transportation Institute’s Congestion Study, Surface
Transportation Policy Project (May 2001).
3
Ibid.
4
In fact, if the region obtains the nearly $2
billion needed to build the toll road, we
expect that dollars for transit improvements
will be even more difficult to obtain.
3. Major new transit investments that reduce traffic congestion and increase
real estate values in the Mon Valley. The Citizens’ Plan would build a new transit
line and extend two premium transit routes. Traffic studies have demonstrated that
cities building more roads have not been successful in reducing traffic congestion.2
Moreover, cities that provide commuters with more choices have managed traffic more
effectively.3 Our plan provides this flexibility by giving commuters three new transit
routes (in addition to the improved road options) in the Mon Valley. The toll road gives
commuters a single option and, while it does contemplate the addition of several parkand-ride lots, does nothing else to augment transit in the region.4
7
The Details of the Citizens’ Plan
CREATING A NETWORK OF URBAN BOULEVARDS
By upgrading a network of local arterial roads and constructing several stretches of new
urban boulevards, the Citizens’ Plan will strengthen connections among the existing town
centers and brownfields and make them attractive centers of new community-serving
development.
Specifically, the Citizens’ Plan will:
Ardmore Blvd., an existing urban boulevard
Convert Existing Arterial Streets to Urban Boulevards. A network of existing arterial
routes would be widened and/or improved to four-lane divided urban boulevards with leftturn lanes at intersections, rebuilding of drainage, reclamation of roadside stream
features, upgraded traffic signals, and refurbished sidewalks and street lighting. Access
to driveways and roadside commercial businesses would be redirected, where possible,
to adjacent service roads. Currently, multiple points for entering and exiting these roads
impede efficient flow of through traffic. By creating service roads that can be entered at
key intersections, access to local businesses could be maintained while greatly improving
mobility on the urban boulevard. In some areas, relocation of businesses from strip malls
to town center clusters is recommended. Upgrading roads to urban boulevard standard
would also provide substantial landscaping in the median and on the sides of the road.
This would support revitalization efforts by providing an image of communities that care
about themselves and are confident of their future.
These roads to be upgraded include:
I
Route 51 from Large to the Liberty Tunnel
I
Lebanon Church Road from Century III to a new road following Thompson’s Run to I-376
I
Route 837 from Clairton through Duquesne, Homestead and the South Side
I
Route 148 from the Mansfield Bridge through McKeesport and East McKeesport
I
Route 885 from Lebanon Church Road through Hazelwood to Oakland
Construct New Urban Boulevards. A seven-mile arterial road, configured as an urban
boulevard, would be constructed on new right-of-way from Lebanon Church Road across a
new river crossing at Duquesne through Turtle Creek to Monroeville. This road would
follow Thompson’s Run on both sides on the river. In addition, two short stretches of new
urban boulevard would be built: the first a 1.5-mile section joining the toll road terminus in
Large with Route 837 in Clairton and the second a one-mile section connecting Route 51
east of the Century III Mall to Lebanon Church Road near its junction with Route 885.
Once this network has been completed, local development will lead to further rebuilding
tattered streets, adding additional connections and building local street networks within
the brownfields. For example, the Citizens’ Plan proposes improvement of connections
surrounding Century III for the purpose of creating, over time, a new town center consisting of mixed retail and residential development.
8
SEE PAGE 9
ALTERNATIVE TRANSPORTATION PLAN FOR THE MON VALLEY & PITTSBURGH
URBAN BOULEVARDS
New Urban Boulevards with Transit
Example of a new
urban boulevard such
as the road proposed
between Turtle Creek
and Monroeville.
NB
T
A
Two twelve foot travel directions in either direction
(PennDOT Standards.)
B
Efficient signalized intersections with dedicated left hand
turn lanes.
C
New dedicated light rail right of way and with extension
of existing service.
D
Ecologically restored creek with conservation easement.
E
New walking and bicycling trails.
B
C
A
D
E
6’ 12’
14’
14’
New Transit Right of Way
13’
12’
18’
12’
13’
12’
8’ Bike Trail
6’
100’ New Boulevard Right of Way
Walking Trail
Restored Creek
Upgraded Commercial Urban Boulevard
Example of an upgraded
urban boulevard lined
with commercial uses.
This example illustrates
a congested commercial
arterial such as route 51
transformed into an
efficient urban boulevard
with new development
opportunities.
A
B
C
D
E
UB
F
G
Two twelve foot travel directions in either direction without frequent driveways (PennDOT Standards.)
Efficient signalized intersections with dedicated left hand
turn lanes.
New development parcels.
New service road network connecting to development
and parking.
New shared parking facilities.
Ecologically restored creek with conservation easement.
New walking and bicycling trails.
B
D
C
F
E
A
6’ 12’
12’ 12’
New Street
New Development & Parking
13’
12’
18’
12’
13’
12’
8’ Bike Trail
100’ Widened Boulevard Right of Way
6’
G
Walking Trail
Restored Creek
Upgraded River Edge Urban Boulevard
Example of an Urban
Boulevard upgraded
along a constrained river edge. This example
illustrates an area constrained by existing railroad tracks and a river
bank such as sections
of route 837.
A
B
C
D
UB
E
Two twelve foot travel directions in either direction
(PennDOT Standards.)
Efficient signalized intersections with dedicated left hand
turn lanes.
New walking and bicycling trails along the Monogahela
River.
Cantilevered extension of existing roadway where
needed to accommodate widened road.
Ecologically restored riparian river edge with conservation easement.
C
B
A
D
E
Existing Railroad
Right of Way
13’
12’
11’
12’
13’
70’ Widened Boulevard Right of Way
6’
Bike & Walking Trail
Restored River Edge
Conservation Zone
PENN FUTURE COMMITTEE FOR AN ALTERNATIVE TO THE MON-FAYETTE TOLL ROAD
9
The Details of the Citizens’ Plan
The Turnpike’s Plan does not include any comparable investment in local streets to build
access to community-serving destinations. Cutting across an undeveloped ridgeline for
much of its way, the toll road will have limited interchanges (only three in the lower Mon
Valley) that fail to directly serve most of the Valley’s potential redevelopment sites. The
toll road emphasizes speed through the Valley over access within the Valley. In contrast,
urban boulevards improve traffic flow while remaining an integral part of the surrounding
community.
IMPROVING CONNECTIONS TO INTERSTATE HIGHWAYS
The Mon Valley has 16 major or potential generators of traffic: seven existing town and
city centers, eight former industrial or brownfield sites, and the CSX intermodal piggyback rail/truck terminal in Pitcairn. Access to the interstate system is vital to those
employers which are most sought-after for these sites and businesses that export
services or products outside the Pittsburgh area. Most shipping for these industries (highvalue products, research and development, software, etc.) is done via trucks using
interstate highways.
The urban boulevards under our plan would provide greatly increased mobility over
current road conditions, but blend more naturally into an urban environment, like that
occurring throughout the Mon Valley and into Pittsburgh. While urban boulevards
typically carry traffic at speeds less than those on highways, they provide for efficient
movement of vehicles due to fewer entry and exit points, the addition of turn lanes, and
better signalization. The network of urban boulevards described in the preceding section
will move traffic directly from the Mon Valley redevelopment sites both north to I-376 and
on to the mainline Turnpike, as well as south to the terminus of the Mon-Fayette and
thereby to Route 70.
BUILDING NEW AND EXTENDING EXISTING TRANSIT ROUTES
Pittsburgh is notable among U.S. cities in that a high percentage of its regional employment is downtown. Also noteworthy is the high percentage of workers in downtown
Pittsburgh who use public transportation.
The Citizens’ Plan contains three major transit initiatives to improve commuter travel to
employment and education centers in Oakland and downtown Pittsburgh:
A new 12-mile transit line would originate downtown and travel through Oakland and
Hazelwood to Homestead and ultimately to Braddock.
I
An extension to the East Busway for a distance of roughly eight miles would run from
Rankin through Braddock and Turtle Creek to Monroeville.
I
A 4.2-mile spur would be built from the South Hills light rail system to the Century III
Mall. While not included in this plan, a future light rail extension to the toll road at Large
would be possible.
I
10
Transit in Portland, OR
In addition, the Citizens’ Plan calls for several multi-use terminals at key junctures:
downtown Pittsburgh, Century III, Braddock, Monroeville and potentially Large. At these
stations, commuters would be able to transfer from their cars to transit or, in some cases,
from one mode of transit to another. These multi-use centers would also serve as centers
for commercial development, such as shopping, restaurants and entertainment.
The Citizens’ Plan is also compatible with plans to develop river commuting along the
Monongahela currently envisioned from Homestead to downtown Pittsburgh. If plans for
river commuter service are approved and funded, our Citizens’ Plan will provide direct
access to the Homestead boat dock via an upgraded Route 837. If successful, river
commuting could ultimately be extended to the Braddock multi-use terminal.
The proposed transit initiatives in the Citizens’ Plan contrast sharply with the Turnpike’s
toll road proposal as a measure to improve commuter access between the Mon Valley
and downtown Pittsburgh. The downtown Pittsburgh triangle cannot easily accommodate more worker travel by automobile with its peak-hour traffic and daytime parking
needs. City plans and policies, recognizing this constraint, explicitly reject additions to
downtown street capacity, and instead call for more use of public transit. The triangle
can, however, readily accommodate more travel by transit. Dedicated transit routes into
downtown have ample space capacity and are unaffected by road congestion.
As has been demonstrated by other cities’ transit investments, our plan’s new transit
lines would also increase real estate values and stimulate business development —
banks, cleaners, coffee shops, and other enterprises serving commuters — near transit
stations. While development also springs up around toll road interchanges, this type of
development further drains commercial activity away from existing town centers to
undeveloped parcels adjacent to the interchanges. Transit development infuses new life
into the hearts of communities where transit stops are located.
OTHER ADVANTAGES OF THE CITIZENS’ PLAN
When analyzing the benefits of a transportation plan, the ability to move people and
goods most efficiently is seen as the key to economic development in the region. Under
this measure, substantially larger segments of the population and business community
will be served by the Citizens’ Plan’s comprehensive network of roads and transit than
would be served by a single alignment of toll road. Much like the decision between
buying a single-purpose article of clothing (e.g., a ball gown) or an entire wardrobe, this
region must choose between investing in a limited-access toll road or a multimodal
network that maximizes access and mobility throughout the Mon Valley. Any cost/
benefit analysis will inevitably point to the superiority of the Citizens’ Plan.
The ease with which labor can access employment sites is another key economic factor
for sustained growth. Businesses investing in this region will depend on an available and
qualified labor pool as much as adequate freight routes. By providing state-of-the-art
transit facilities — light rail, dedicated busways and multi-use terminals — the Citizens’
11
The Details of the Citizens’ Plan
Plan addresses the access needs of significantly more businesses and workers than the
proposed toll road.
Moreover, the Citizens’ Plan will not promote sprawl development in outlying suburbs and
rural areas. The broad network of roads and transit will encourage reinvestment in the
existing communities served by these improvements. Absorption of new businesses and
residents into established urban areas preserves and strengthens our existing infrastructure. This is not just sound land-use policy. It is sound economic policy. New development
in outlying areas requires additional tax revenue to build new community services such as
schools and hospitals. This diverts revenue from older communities where existing
services are under-funded and poorly maintained.
The environmental advantages of the Citizens’ Plan are evident. By deterring sprawl, it
preserves the region’s forests, streams and hillsides. Moreover, by promoting alternatives
to automobile usage, there will be fewer air quality impacts. The Citizens’ Plan will cause
less run-off to rivers and less disruption of riverbanks and wetland areas.
The Citizens’ Plan also better balances the potential for economic development of the
riverfronts with their recreational value. The toll road would pave over one of the few
remaining stretches of undeveloped riverfront and disrupt Hazelwood’s redevelopment
vision. Our plan would complement the Hazelwood plan and allow the region to keep its
options open for future riverfront uses that may not yet have been identified.
12
The Citizens’ Plan: Serving the Needs of
the Whole Community
A transportation system that is truly responsive to the needs of the community is one that
puts quality of life and land use first. These should drive infrastructure investment, not the
other way around. This approach requires expertise on land use, environment and
community-friendly transportation planning, not evident in the Turnpike’s Plan. The
balanced, more sustainable transportation solutions in this report were developed with
this philosophy in mind.
It is important to stress that substantial involvement will be required by those who would
be affected by the proposed improvements before any action takes place. The discussions
contained in this analysis are presented only for the purpose of demonstrating the
benefits and feasibility of improvements to the transportation network in this section of
Allegheny County. Stakeholder involvement in further analysis is essential.
THE HIGHWAY COMPONENT
I
Route 837 Corridor: All Communities
Communities along this corridor will benefit in several ways from the Citizens’ Plan. Route
837 will be upgraded to an urban boulevard making this Mon Valley main street much
more efficient. Depending on the need and location, lanes will be added and existing
pinch points at railroad crossings, bridges and river edges will be eliminated by redesigned sections of road over the tracks and side roads. Slow moving trucks will not back
up traffic. A reduction of driveways to businesses will increase traffic speed and improve
safety. A Route 837 urban boulevard will connect to other urban boulevard upgrades at
Clairton, McKeesport, Duquesne, at the Glenwood Bridge and in Pittsburgh’s south side.
These improvements will provide access to Interstates 376 and 70, improve travel to the
employment centers of downtown Pittsburgh and Oakland and provide faster connections
among Valley communities. A more efficient road will not only reduce commuting time,
but will make the communities along Route 837 more accessible and thus more attractive
to investors.
In contrast to the toll road that would be built on the hilltops overlooking the Valley and
rely on existing winding roads to serve Valley communities, an upgraded Route 837 will
directly serve the communities and also the existing and potential brownfields along the
Monongahela.
I
Route 837 Corridor: Clairton
Clairton will be served by two urban boulevards: an upgraded Route 837 and a new road
that will connect with the toll road at Large through the Peters Run Valley.
This idea has been suggested by the Clairton community and could become a demonstration of how a road can be built that is efficient and environmentally responsive.
Route 837 in Clairton
A landscaped urban boulevard through Clairton will improve the attractiveness of this
corridor and make the image of Clairton more consistent with the appealing stores and
homes up the hill to the west.
13
The Citizens’ Plan: Serving the Needs of
the Whole Community
I
Route 837 Corridor: Duquesne / West Mifflin
Duquesne will not experience any widening of Route 837 since it currently has four
lanes. However, speeds and safety will be improved by reconfiguring some of the side
streets that now have direct connections to Route 837 to use Grant Street, which may be
reconstructed with a grade-separated interchange with Route 837. This improved access
also will make RIDC’s Duquesne City Center more attractive to investors.
In the West Mifflin/Kennywood section, efficiency of Route 837 will be improved by
eliminating most of the unsafe driveways. This will improve both speed and safety and
will also have the benefit of eliminating deteriorating and underused buildings, thus
adding to the attractiveness of this section of the municipality.
I
Route 837 Corridor: Homestead
The upgraded road will benefit Homestead by providing opportunities for both the traffic
wishing to access the homes in the community and the shopping opportunities along 8th
Avenue. This can be provided with improved access to the Waterfront from Route 837 at
the up-river end and by extending Waterfront Drive to reconnect with Route 837 behind
Sandcastle. By reducing through traffic on 8th Avenue, this approach will support efforts
to revitalize it as a community main street.
I
Route 837 Corridor: City of Pittsburgh
The City of Pittsburgh’s benefits from an upgraded Route 837 will include better access to
the major investments in the South Side Works being made on either side of the Hot
Metal Street Bridge down to the Birmingham Bridge. Previous analysis indicated that the
improvements to Route 885 or a new road on the north side of the Mon River through
Hazelwood would reduce the traffic on the south shore by 28 percent, thus reducing the
need for widening. In addition, the 2003-2006 SPC Transportation Improvement Plan
contains engineering for the portion of East Carson Street (Route 837) between 25th and
33rd streets to support the South Side Works development.
I
Route 885 Corridor
The Route 885 corridor between the Glenwood Bridge Interchange and the 10th Street
Bridge (Hazelwood and Oakland) has been analyzed for over three decades. Additional
work will be needed to accommodate a new road on the LTV site while ensuring connections to the residential and commercial community traffic without compromising the
carrying capacity of the urban boulevard. The community plan developed last year by the
City Planning Department and Hazelwood establishes a model for the design process and
solutions that each community in the Valley needs in order to properly integrate transportation improvements. Unfortunately, communities like Braddock have not had the
resources and opportunity to develop a similar plan. The 1960s-style destruction that is
proposed by the Turnpike Commission for Braddock illustrates what the lack of community planning will create.
Using the work from the Hazelwood Initiatives Plan, our concept is to build a new urban
boulevard through the LTV site connecting to Second Avenue on the Mon River side of
14
Route 837 in Duquesne
Upgraded River Boulevard: Route 837
Map reproduced from Traffic Route 837 Feasibility Study, 1987
15
The Citizens’ Plan: Serving the Needs of
the Whole Community
the Greenfield Avenue/Irvine Street underpass. Connections with these streets and the
Parkway East plus improvements at the Bates Street intersection would expedite through
traffic while permitting residents and shoppers wishing to access the Hazelwood
community a less congested trip. It should be emphasized that this is not the only solution
and that the community must be heavily involved to determine the right direction.
I
Route 51 Corridor
The efficiency of traffic throughout this corridor will be enhanced dramatically with the
transformation of Route 51 into a landscaped urban boulevard with adjacent commercial
clusters of businesses accessed by service roads rather than by the present access drives
directly from Route 51. This allows more sustainable and convenient parking and customer access, which in turn increases land values.
Route 51 at Whitehall
Moving north from Large, parallel service roads would begin in the vicinity of the Lewis
Run Road intersection with Route 51. Initially connections between the urban boulevard
and the service roads would occur near Lewis Run Road, at Bruceton Road and at the main
Century III Mall entrance.
In keeping with our key concept that sustainable land use drives good transportation solutions, we propose that Century III be thought of as a new town center
that begins to address integration of community needs, housing, and transit. In
essence Century III, the mall, becomes Century Three, the town.
SEE PAGE 17
North of the Mall entrance construction of the urban boulevard will require the
reconfiguration of some existing stores. Again, these changes, while requiring some
relocation, provide much greater value and benefits to land owners and businesses in the
long run. This concept is discussed more fully in the discussion of Route 51 within the City
of Pittsburgh boundaries.
The area of the Route 51/Lebanon Church Road interchange would be improved significantly with the redesign of the interchange and the four converging roads.
North of the interchange the urban boulevard concept will again require reconfiguration
of some commercial structures with the possibility of clustering if the remaining lot
depths permit.
At the Streets Run Road intersection with Route 51 there is an opportunity for substantial
efficiency and safety improvements through redesign requiring the removal of the traffic
signal and the construction of ramps.
From the boundary of the City of Pittsburgh north to the Liberty Tunnels a recent study
commissioned by the City recommends the urban boulevard/parallel service road
approach. Specifically, improvements to the Route 51 and Route 88 intersection will
remove a major bottleneck in the Route 51 corridor. This study also recommends the
clustering of commercial establishments in several locations along Route 51. This permits
these clusters to be serviced by many fewer intersections with Route 51 thus substantially increasing the efficiency of this road. These recommendations are entirely consistent with the approach taken for the entire alternative system.
16
SEE PAGE 18
ALTERNATIVE TRANSPORTATION PLAN FOR THE MON VALLEY & PITTSBURGH
MULTIMODAL TOWN CENTER
Today : Unsustainable Sprawl and Traffic
Badly designed infrastructure is overwhelmed by poorly planned suburban development creating congestion
and sprawl. These problems are only exacerbated by new interstate construction which induces more sprawl.
Route 51 at Century III Mall today
Uncontrolled commercial development leads to
sprawling inhumane traffic clogged arterials.
Development of large single use pods leads to numbing
uniformity, auto dependence and environmental ruin.
Tomorrow : A Sustainable Mixed-Use Multimodal Center
Investments in well designed multimodal infrastructure allow for the development of new mixed use town
centers served by new urban boulevards and light rail transit.
Route
Route 51
51 at
at Century
Century III
III Mall
Mall in
in 10
15 years
years
A
C
B
E
D
Wise investments in multimodal infrastructure allow for the creation of a
sustainable town center that will stimulate the economy, better serve the future
needs of the region and create opportunities for long term growth.
Route 51 at Century III Mall in 30 years
A
Multimodal infrastructure and mixed use
development create
sustainable beautiful
places.
MM
A
‘T’ Service is extended to serve the area surrounding Century III mall.
B
A new Urban Boulevard with light rail links Route 51, Route 837 and Lebanon Church
Road
C
New walkable town center with both local and national retailers built along the new
multimodal Urban Boulevard with wide sidewalks, street trees and light rail transit
D
A new 1200 car Park ‘n’ Ride facility with express ‘T’ service to downtown serves
Mon Valley commuters
E
UB
T
C
Route 51 at Century III Mall in 10 years
Multiple new ‘T’ stops serving Century Square and Century III Mall
F
B
E
D
Route 51 at Century III Mall in 30 years
F
A new walkable residential neighborhood close to transit and retail is built after
Century Square and Century III reach the end of their 30 to 35 year life cycles
G
‘T’ service is extended down Route 51 to a new Park ‘n’ Ride at the Mon-Fayette
Expressway terminus and to the City of Clairton
G
PENN FUTURE COMMITTEE FOR AN ALTERNATIVE TO THE MON-FAYETTE TOLL ROAD
17
New Urban Boulevard: Route 51 • Pgh
Route 51 Corridor Study Excerpts, UDA Architects 2000
18
I
Route 148
Between the Mansfield Bridge and the Jerome Street Bridge over the Youghiogheny
River, Route 148 would be upgraded to an urban boulevard permitting more efficient flow
of traffic in this corridor.
The existing roadway (Lysle Blvd.) through the commercial section of McKeesport would
remain but signal synchronization and plantings would increase the efficiency and
attractiveness of this section.
North of the McKeesport-Duquesne Bridge widening and elimination of some points of
access to Route 148 are necessary to improve this section to urban boulevard standards.
However, north of approximately Naysmith Road the existing road width and configuration would remain. The steepness of the hillsides on either side and the lack of development do not warrant major improvements.
Also, from Route 30 to Route 130, Route 148 would not be upgraded due to the commercial vitality in East McKeesport and the steepness of the terrain downhill to Route 130.
Route 130 between Pitcairn and the Thompson Run Valley would be upgraded to the
urban boulevard standard.
I
Lebanon Church Road – Route 51 to Approximately Buttermilk Hollow Road
Between Route 51 and Mifflin Road (Route 885) the existing road is sufficient if several
intersecting roads and commercial access points would be eliminated and served with
parallel service roads.
Modest widening of Lebanon Church Road throughout the corridor would permit the
installation of median and shoulder landscaping, thus significantly improving the appearance of this section of the corridor.
At the intersection with Route 885, a grade-separated interchange would dramatically
improve traffic flow by permitting free flows along Lebanon Church Road and into the
commercial area as well as north along Route 885. The parallel service roads also would
be accessed from this interchange, and would increase the efficiency and safety of
Lebanon Church Road.
Several direct access points from Lebanon Church Road to adjacent commercial establishments would be eliminated with access provided by Clairton Road.
The Clairton Road intersection may need to be improved by creating a grade-separated
interchange. However, this will require further analysis of the volume of traffic and
turning movements.
The section of Lebanon Church Road east of Clairton Road will become more efficient
when adjacent uses are accessed from either Clairton Road or Camp Hollow Road.
The Lebanon Church Road – Camp Hollow Road intersection will also require further
analysis to determine if an interchange is needed. However, this section will be improved
19
The Citizens’ Plan: Serving the Needs of
the Whole Community
by having Lebanon School Road connect to Camp Hollow Road and also by connecting
Curry Hollow Road to intersect with Camp Hollow Road.
The section between Camp Hollow Road and Buttermilk Hollow Road will become more
efficient when numerous access drives are eliminated as part of the widening to urban
boulevard standards.
I
Route 51 – Lebanon Church Road Connector
One of the segments of the proposed system to be newly constructed is a connector
between Route 51 and Lebanon Church Road. The alignment would permit a more direct
connection with Route 885 near Lebanon Church Road. This new connector would benefit
the commercial establishments in and around Century III, improve safety and permit a
more direct flow of through traffic between the proposed interchange on Route 51 at the
Mall entrance and the proposed interchange at Lebanon Church Road and Route 885.
Further, this road could become the main street of the emerging town center surrounding
the Century III Mall.
I
New Urban Boulevard along Thompson Run
Between approximately the intersection of Lebanon Church Road / Buttermilk Hollow
Road in West Mifflin Borough and Interstate 376 in Wilkins Township a new road would
be constructed to urban boulevard standards. This would follow the Thompson Run Valley
both on the south and the north side of the Mon River. This urban boulevard would be
built at ground level thus permitting more local access for communities such as Turtle
Creek. This boulevard would also provide excellent access to the Keystone Commons
revitalization project of the old Westinghouse plant. A new four-lane bridge would be
built over the Mon River at Duquesne. In addition, the boulevard concept permits views of
the stream and enhances the environmental context for vehicles, transit and trail users.
I
Trails
As part of a balanced transportation system, trails for bicyclists, runners, and other
recreational users would be built and extended based on the plans currently endorsed by
various trail organizations. Building on existing trails, this part of the Citizens’ Plan would
provide uninterrupted passage from the Point in Pittsburgh along both the Monongahela
and Youghiogheny Rivers and beyond, and add a new connection along the Thompson
Run Valley to the Monroeville area. Numerous examples throughout the country show
that investment in trails is very attractive to businesses and individuals looking for high
quality of life.
I
Multimodal Centers
The proposed transportation system provides a rich network of alternative travel choices
and routes. In addition, the multimodal centers permit travelers to switch from one mode
to another. The greatest benefit will be to commuters who wish to park a vehicle and ride
transit to their destination. In several locations the multimodal centers will also be an
opportunity for transfer between transit lines and between a bus and a light rail vehicle.
20
SEE PAGE 22
In addition, these centers could create service retail in the centers themselves, as well as
provide the stimulus for major development around them.
THE PUBLIC TRANSIT COMPONENT
The public transit component of the multimodal system provides a high level of transportation choice that is lacking not only in the Valley, but in many sections of the county and
region. This component will require a substantial investment but it would be of huge
benefit to both commuters and those without autos. The financial benefits of transit
versus auto use are documented elsewhere in this report and should be kept in mind in the
following discussion.
Extensions of two current lines and one new line are proposed. These lines are the subject
of past and on-going analyses by the Port Authority Transit of Allegheny County. Although
they are in various stages of the conceptual and planning process, this proposal shows
that they are credible and necessary investments.
A light rail extension between South Hills Village and the Century III area multimodal
center would benefit not only those living near the line but, more significantly, would also
help those who would park and take transit into the employment centers of Pittsburgh and
Oakland. Congestion would be reduced along Route 51 and in the employment centers. Air
pollution would also be reduced.
The second extension is to the Martin Luther King East Busway beyond Swissvale to the
Braddock multimodal center and to Turtle Creek paralleling the new road in Thompson Run
to the multimodal center at I-376. This system would be a true bypass of the Squirrel Hill
Tunnels, relieving that congestion nightmare for thousands of commuters from the eastern
suburbs. The congestion and air quality benefits mentioned above would be true for this
section of the Valley. Employment and economic development opportunities such as at
Keystone Commons would be even more attractive with adjacent high level transit
service.
SEE PAGE 23
The largest transit investment called for in this report is a light rail system commonly
called the Spine Line. This line will run from downtown Pittsburgh to Oakland and from
there to Hazelwood, Homestead, West Mifflin, Duquesne, crossing on the new bridge to
connect with the multimodal center in Braddock. In addition to serving commuters along
the route, this line would increase the attractiveness of major brownfields in Duquesne,
Homestead and Hazelwood for economic investment and employment.
21
Thompson Run: Boulevard/Transit/Watershed
22
Transit Oriented Communities
Excerpts from “East Light Rail Transit Community Design Report” by OTAK 9/2000
23
The Citizens’ Plan: Putting Public Money
to Work for the Public
The transportation needs in this region of Allegheny County are documented in this report
and elsewhere. The proposed multimodal system of improvements will provide a rich
network of road, transit and trail choices to meet a range of needs. The proposed system
will provide direct, upgraded service to existing communities and brownfields that can
house new economic activity. Because of this, the Citizens’ Plan holds out the best hope
of maintaining and revitalizing existing places in this area of Allegheny County.
This confidence in the benefits of the proposed multimodal system underlies the assumptions contained in the financing plan. The plan is grounded in the belief that, based on a
superior approach, the political will can be generated to provide the necessary funds for
realizing the opportunity for community and economic revitalization.
The proposed multimodal system will include upgrades to several existing roads, some
new construction, major new busway and light rail transit service, multimodal centers
and trails for biking and walking.
COST ESTIMATE FOR THE CITIZENS’ PLAN
The estimate for the road component of the Citizens’ Plan is approximately $1.2 billion,
less than two-thirds of the estimated cost of the toll road. As detailed elsewhere in this
report, this estimate is based on upgrading seven existing routes to urban boulevard
standards and the construction of three new urban boulevards. This 62 miles of upgraded
and new roads is a superior solution to the needs of this section of Allegheny County.
Moreover, if the toll road were built from Route 51 to I-376, the upgrades to major arterial
roads contemplated by the Citizens’ Plan would need to be undertaken anyway. But the
$1.9 billion toll road estimate fails to account for any such costs.
A critical component of the Citizens’ Plan is the inclusion of 23 miles of three major, new
fixed-guideway transit investments that are not included in the toll road project. The cost
estimate for this transit investment is $1.5 billion. This estimate is based on past experience with similar projects in the region plus existing studies of the proposed new
investments. Again, this component will bring high quality transit service to many
communities in southeast Allegheny County.
As described earlier in the document, the Citizens’ Plan proposes five multimodal centers
that will provide garages and convenience retail space for commuters and other travelers.
The cost estimate for these centers is $121 million.
The final component of the Citizens’ Plan is a major, 20-mile extension to the county's trail
system, with a cost of $10 million. This trail network will not only permit bicycle commuting but also create recreational opportunities prized by younger workers and new
economy companies. This component is a key part of the region's investment in our
future.
While the $2.7 billion estimated total cost of the Citizens’ Plan is higher than the estimate
for the toll road alone, the benefits of the extensive multimodal service proposed in the
24
alternative exceeds this gap by a much greater amount. Table 1 (page 32) illustrates the
breakdown of the costs for the Citizens’ Plan.
The benefits of this approach are supported by market forecasts prepared by Price
Waterhouse Coopers and published in Emerging Trends in Real Estate. These forecasts
point to the advantage of cities with mass transit for future prosperity:
Markets served with mass-transportation alternatives and attractive close-in neighborhoods should be positioned to sustain better long-term prospects as people strive
to make their lives more convenient. Building roads and spaghetti junctions won't
handle future growth alone and will only raise already unacceptable air pollution
levels. (Emerging Trends 2002)
FUNDING FOR THE CITIZENS’ PLAN
There are four basic sources of funds for transportation improvements: federal, state and
local government programs and the use of value capture. The value-capture concept is
supported by the anticipated new development that will be attracted by the public
investment in a multimodal transportation system. Bonding of certain revenue streams
can also provide funds to advance a plan such as this. The funds to pay the debt service
would come from the same sources. These sources of funding are discussed below.
I
Federal
Regular federal transportation funds are allocated (programmed) through the Southwestern Pennsylvania Commission (SPC), the designated Metropolitan Planning Organization
(MPO) for the nine-county region including Allegheny County.
In June 2002, SPC approved the four-year Transportation Improvement Program (TIP),
allocating approximately $1.5 billion for highways for the years 2003-2006. The public
transit component allocates approximately another $1.0 billion for this same period.
The 2003-2006 TIP already contains $20.3 million for road projects within the proposed
alternative system. These include improvements to the Glenwood Bridge ramps, Route
837, Streets Run Road, McKeesport-Duquesne Bridge, the Youghiogheny River trail, the
Route 51/88 intersection and East Carson Street. None of the transit projects envisioned
in the Citizens’ Plan is currently contained in the TIP. Just as with other major transit
capital investments, funding for new projects like the Citizens’ Plan would be negotiated
between the Port Authority and the Federal Transit Administration.
We propose reallocating $101 million that is shown in the current TIP for the toll road
project to identical activities that are elements of the Citizens’ Plan.
All of the projects proposed in the Citizens’ Plan are eligible under the federal highway
program. It is reasonable to assume that a small portion of the funding available to the
SPC region could be allocated to the various roadway projects included in the Citizens’
Plan. It is assumed that 5 percent of the annual roadway portion would be made avail-
25
The Citizens’ Plan: Putting Public Money
to Work for the Public
able for this important economic development initiative. Based on the current four-year
allocation of $1.5 billion, $156 million would be provided from the TIPs covering the years
2007-2014. This would avoid disrupting the current 2003-2006 transportation program
for the region.
Using the innovative financing tools offered by the US Department of Transportation
could advance the implementation of the Citizens’ Plan and speed economic reinvestment. Possibilities include Grant Anticipation Revenue Vehicles (GARVEE) or the
Transportation Infrastructure Finance and Innovation ACT (TIFIA). These tools provide
mechanisms to advance projects sooner than would be possible if the projects were
funded solely by relying on the regular stream of federal highway or transit revenues. The
GARVEE program permits states to use future federal reimbursements to pay debt
service. The TIFIA program provides credit assistance in the form of direct loans, loan
guarantees and standby letters of credit.
Another source of federal funding for highway projects is through earmarking for specific
projects by special congressional action. The Turnpike Plan has assumed $450 million of
earmarked federal funds through 2022, based on Pennsylvania's very high success rate in
the past in securing federal earmarks in surface transportation legislation. We are
proposing a more conservative posture regarding the earmarking of funds, given the
changes in Pennsylvania's congressional delegation, the current tightness of federal
funds, reluctance by the administration and Congress to raise new revenues, and the
risks of assuming earmarks 20 year into the future. The Citizens’ Plan assumes an
earmark of $100 million over a shorter period of time (2004 through 2012). This level of
funding is in line with the current level of earmarkings for the toll road.
Transit investments are eligible for the Federal Transit Administration's New Start
program. Given that there is an extraordinary amount of competition for New Start
Funds, the level of federal contribution is assumed to be 60 percent rather than the
statutory level of 80 percent. Using this program would provide $900 million or half of the
estimate for the transit component of the alternative. These funds require an equal
match, which could be drawn from several different sources.
The innovative financing tools identified for the highway could be used for the public
transit portion of the plan as well.
The Port Authority has been successful in securing a congressional earmark for its
busway system and it is a reasonable assumption that this source would be available in
the future. For this financing concept, $20 million is assumed to come from this source.
Certain federal highway funds are eligible to be applied to transit projects. It is assumed
that $150 million of the cost for the transit investment can be covered by this source.
The proposed trail system would be financed with $10 million from the federal Enhancement Program allocated through the TIP process. This program is contained in the
transportation legislation and is used to protect and promote natural and historic assets
and for alternative forms of transportation such as biking and hiking trails.
26
I
State
As part of the financing plan for the toll road, the Turnpike Commission was successful in
obtaining a portion of the Oil Company Franchise Tax (OCTF) (Act 26 of 1991) and of the
State Vehicle Registration Fee (Act 3 of 1997). The annual stream of funds from both of
these sources is approximately $70 million. There is no end to this flow of funds, except
that they are to be used "to protect bondholders" of projects identified in the various
pieces of legislation, specifically: Act 61 of 1985, Act 26 of 1991 (OCTF) and Act 3 of 1997
(registration fee).
In the current financing plan the OCTF-backed bonds would be refinanced in 2013 for
$260 million. This proposal is included in the Citizens’ Plan. Legislative action would be
required to adjust the projects for which these funds are to be used.
The current toll road financing plan requires future state legislative action to provide
funds to permit the sale of $463 million in additional bonds in 2004, $463 million in bonds
in 2012 and $502 million in bonds in 2020. This assumption seems to be overly optimistic
and the proposal for the Citizens’ Plan reduces this assumption by $1 billion, proposing
$385 million of new bonds to be issued.
With respect to transit financing, the State of Pennsylvania is a funding partner in Port
Authority projects. Based on experience, it is reasonable to assume that state bonds will
provide approximately 12 percent of the total project cost or $175 million.
I
Local Government
Given the significant reinvestment anticipated as a result of the Citizens’ Plan, it is
assumed that Allegheny County's bonding capability as well as federal programs such as
the Community Development Block Grant could provide a small portion of the costs of the
proposed transit investment. Slightly more than 6 percent or $100 million is assumed to
be available from this source.
I
Value Capture
The discussion of potential sources of funds coming from the increase in the tax base
include a range of programs authorized by state and local governments, but paid by the
private sector beneficiaries of the improvements in the form of property taxes or special
assessments. Because of the direct access to existing communities and brownfields in
the Valley, the economic development potential of the Citizens’ Plan is assumed to be
greater than the potential for the toll road proposal. Therefore, some means of capitalizing on this development should help to finance the improvements.
Several programs that could be used, probably in a mix, include the state's Transportation
Partnership Act (TPA), the Local Economic Revitalization Tax Abatement (LERTA) program
(although with taxes diverted, not abated) and the Tax Increment Financing (TIF) program.
These programs are based on the principle that there should be a way for the public
sector to use some of the improved value, created by public improvements, to help pay for
the improvements. These programs are discussed briefly below but substantial analysis
27
The Citizens’ Plan: Putting Public Money
to Work for the Public
would be required to determine their usefulness in financing the proposed transportation
system.
1. Transportation Partnership Act (TPA). Under the TPA the affected municipalities
would approve the creation of a transportation development district, which would create
a multi-year plan detailing the proposed improvements and a financing plan. This must be
approved by the county, the SPC and PENNDOT. The improvements may be financed by a
fair and reasonable assessment against benefited properties and/or the imposition of
any tax permitted by law and/or by notes and bonds. A public hearing is required. Any
subsequent municipal ordinance establishing the district shall not become effective if
property owners of more than 50 percent of the assessed valuation in the proposed
district protest.
As an example of the value-capture concept, there are approximately 700 acres in
brownfield sites that would be served by the proposed system, including the Industrial
Center of McKeesport, the City Center of Duquesne, a portion of the WABCO site in
Wilmerding, a portion of the Edgar Thompson Works of US Steel and the LTV site in
Hazelwood. Using several recent brownfield redevelopments as examples, this amount
of acreage could generate $1.4 billion in new private investment.
Currently the county rate on real estate is 4.69 mils. The municipalities in the corridors
are around 5 mils and the school districts around 20 mils for a total of approximately 30
mils.Therefore, a benefit levy of 10 percent of the current taxes would yield approximately $4.2 million per year. This would service perhaps $60 million in bonds at current
rates.
2. Local Economic Revitalization Tax Abatement (LERTA). This program allows
government to forgive real estate taxes on buildings erected in the designated district for
up to ten years. However, to be useful as a source of funds for the Citizens’ Plan, the tax
payments would be paid but diverted to service bonds sold to pay for the improvements.
There is precedent for this to be done under contract with the property owners. This could
be done under a form of partnership, for example, with a major employer who saw the
advantage of improved transportation access.
3. Tax Increment Financing (TIF). This program devotes taxes on the increase in value
of new development to pay the bonds sold to finance the improvements. While this
deprives the taxing jurisdictions of current revenue, the concept is that they will eventually receive more in taxes than they had to give up. This program could be an acceptable
tool in an area such as the Mon Valley where the need for revitalization of brownfields is
great.
For both the highway and transit components together, $350 million could be generated
through a variety of value-capture mechanisms as well as the donation of rights of way
for projects in the Citizens’ Plan. This represents less than 15 percent of the total
estimated cost for the alternative.
28
ADMINISTRATIVE STRUCTURE
As a comprehensive system, the Citizens’ Plan can replace the proposed Mon-Fayette toll
road in Allegheny County and provide vastly more benefits in doing so. However, this
result depends on conceiving it as a total system and building it over a relatively short
period of time. This will require a special entity focused only on this task, much like the
Turnpike is focused on the toll road. This entity must possess the legal powers to accomplish its task. We propose that this entity be created by the state and be referred to as the
Southeast Allegheny Transportation Improvement Authority.
In fact, the Turnpike Commission could be this entity for the road portions of the Citizens’
Plan on the basis that it is simply implementing projects authorized by the state legislature. In addition, it could be the financing agent for the all of the Citizens’ Plan, based on
its excellent credit rating and resulting ability to borrow at low rates.
SUMMARY
Being able to advance funding to spur private reinvestment and support economic activity
is likely to require the use of innovative financing tools. While these opportunities need
further research, they do present a reasonable path forward to achieve the goals of the
Citizens’ Plan.
The cost of the Citizens’ Plan is significant: $2.7 billion. We believe that this multimodal
system is a superior approach to maintaining and revitalizing the region's communities
and its economic base while conserving its natural assets and enhancing both safety and
the general quality of life for all of its citizens.
Reinventing an area such as the Mon Valley requires vision and financial resources. All
funding sources that have been identified here are currently available. The challenge will
be for the region to work through the priorities for reinvestment and to advance a program
that truly adds value and creates livable communities in which people can raise families,
earn a living, shop and enjoy the physical assets of the region.
29
FUNDING SOURCES FOR THE CITIZENS’ PLAN
In millions:
HIGHWAY PROGRAM
Reallocate from toll road in current TIP
Reallocate from road projects in current TIP
101
20
To be programmed in 2007-2014 TIPs
156
Future highway earmarks
100
Value Capture
171
Refinancing OCTF bonds in 2013
260
Bonding backed by OCTF/Registration Fee
385
SUBTOTAL HIGHWAY
(includes the multimodal centers)
1193
TRANSIT PROGRAM
New Start Program
900
State match for New Start funds
139
Local match for New Start funds
100
Federal flexible funds
150
Value capture
175
Federal earmark
SUBTOTAL TRANSIT
20
1484
TRAILS
Transportation Enhancement Program
TOTAL PROGRAM
30
10
$2,687
The funding sources offered in this
report are based on eligible activities under federal and state programs. This proposal has built upon
some of the assumptions used for
the Turnpike's Plan as well as some
new approaches that have been
used in other areas. There is
precedent in using the Turnpike as a
financing mechanism for non-toll
roads that affect a toll facility; thus
it is assumed that the roadway
projects proposed in the Citizens’
Plan are permissible under current
law. As noted above, there would
need to be an adjustment in the
project list contained in the authorizing acts to include the projects in
this plan. Additional time and
further research would have to be
undertaken to determine the
feasibility of using certain of the
tools and approaches presented
here for the alternative. The costs
developed for this review have been
taken on face value and have not
been examined to determine their
reasonableness or if it is possible to
reduce the estimates.
BIBLIOGRAPHY1
Master Development Planning in Hazelwood and Junction Hollow, Saratoga Associates
for the City of Pittsburgh (December 2001).
Technical Memorandum No. 2: Development of Alternatives for Saw Mill Run Boulevard,
City of Pittsburgh Department of City Planning (July 2001).
East Light Rail Transit Community Design Report, Otak for the Turtle Creek Valley Council
of Governments (September 2000).
Route 51 Corridor Study for Brentwood/Whitehall, Urban Design Associates and
LaQuatra Bonci Associates for Allegheny County Department of Economic Development
(Summer 2000).
Traffic Route 837 Feasibility Study, SAI Consulting Engineers, Inc. for the Southwestern
Pennsylvania Regional Planning Commission (1987).
A Long-Range Plan of Improvement for Lower Turtle Creek Valley, Pittsburgh Regional
Planning Association and Allegheny Conference on Community Development (March
1955).
In addition, interviews were conducted with Port Authority planning staff to ensure
consistency with their current long-range planning initiatives.
1
The Citizens’ Plan draws on conclusions in the published regional transportation and
land use studies listed above. Reference to or reprinting of illustrations from these
studies does not signify that the authors or the sponsoring agencies have endorsed this
plan.
31
32