Introduction
Economic Development Considerations in Transportation Planning
The Legislative Program Review and Investigations Committee authorized a study in March 2000 of the economic development considerations in transportation planning. The scope of the study approved by the committee calls for an assessment of how the Connecticut Department of Transportation (ConnDOT) responds to the strategic economic development needs of the state and for an examination of the:
- relationship between economic development and transportation;
- planning and priority setting processes followed by the department; and
- effectiveness of the link between the state's economic planning process and ConnDOT's strategic planning efforts.
Excluded from the study is an evaluation of the state's economic development programs or the goals of those programs. In addition, because the committee authorized a separate detailed study of Bradley International Airport and because the airport is funded separately from the rest of the transportation system, only the long-term planning efforts related to that facility are discussed in this report.
Findings and Recommendations Overview
The committee found transportation investments can have an influence on the state's economic prosperity but this effect is not factored in the Department of Transportation's current planning processes or investment decisions. In addition, the interaction between ConnDOT and the Department of Economic and Community Development (DECD) does not facilitate a strategic planning orientation to sustain economic growth.
A series of recommendations are offered aimed at improving transportation planning by promoting strategic thinking and action as well as enhancing the responsiveness of ConnDOT. A new entity is proposed, the Connecticut Transportation Board, that would be responsible for:
- developing a vision for the transportation system and revising the mission of the Department of Transportation;
- creating and updating a 10-year strategic and financial plan for the operation, maintenance, and improvement of the transportation network that emphasizes a comprehensive, balanced, and multimodal statewide system;
- overseeing any organizational changes to the department and to the planning regions; and
- monitoring the implementation of performance measures and tracking the accomplishment of goals and objectives outlined in the strategic plan.
Transportation System
The Connecticut Department of Transportation is responsible for all aspects of planning, development, maintenance, and improvement of the state transportation system. An organization chart and description of the department's bureaus is provided in Appendix B. The state transportation system includes:
- approximately 19,800 miles of improved roads (of which 3,740 are maintained by the state);
- 5,400 state and local bridges;
- Bradley International Airport, which is New England's second largest airport, and five other state-owned airports together with numerous municipally and privately owned airports;
- rail commuter service between New Haven and New York City and related points provided by Metro-North Commuter Railroad Company which operates 250 trains daily; Shoreline East Commuter Rail Service between Old Saybrook and New Haven, which operates 18 trains daily; Amtrak, which provides regular intercity rail service between New York and Boston and a route between New Haven and West Springfield, Massachusetts; and
- publicly and privately owned bus systems, which operate 1,096 vehicles.
Background
A number of initiatives related to the transportation system including recent studies by ConnDOT, DECD, and non-governmental organizations, the appointment of a governor's council to examine Bradley airport operations, and ConnDOT's own analysis have pointed to a number of problems and limitations with the transportation system that affect the state's ability to meet current and future demands. A general frustration in dealing with these recurring problems has led to an increase in the attention being paid to these issues by the executive and legislative branch.
These problems impact the performance and productivity of Connecticut's transportation network and have the potential to influence the state's economic success. The scope of this study does not permit an in-depth analysis of these problems but focuses on how the planning and priority setting processes incorporate some of these concerns. These issues, briefly identified below by mode of transportation, suggest solutions are complicated and require a long-term commitment by the state to address. The issues include:
- Highways - Congestion is increasing on Connecticut highways and affecting the productivity of certain areas, especially on I-95, the Merritt Parkway, and I-84 west of Hartford. Combating congestion is not only a funding problem but also has behavioral and demographic implications for commuters. Additionally, highway projects are costly, require extensive and time-consuming environmental reviews, and generate significant public opposition. A lack of alternatives for truck traffic is also cited as a problem. It is estimated that 79 percent of freight in Connecticut is moved by trucks, while 2 percent is moved by rail and about 19 percent by water.
- Mass Transit - Mass transit has traditionally played a small role in transportation development in Connecticut. Only about 4 percent of the workforce uses mass transit. Over the past several years funding for this mode has essentially been at the current services level. Part of the issue has to do with the lack of sufficient density in many residential areas to support mass transit. The development of more transit options, therefore, would require an increase in on-going subsidies from ConnDOT. Attracting additional transit riders in some areas requires a change in behavior, and ConnDOT has launched a marketing campaign aimed at retaining and attracting new riders. In other areas of the state such as the Southwest additional mass transit may be the only option. Rail transit along the New Haven Line, though, is hampered by a number of factors, not just behavioral issues, including the lack of parking facilities, management arrangements for parking facilities owned by the department but leased to cities and towns, insufficient bus service to rail stations, and reduced operating assistance available from the federal government.
- Rail Freight - To move a significant amount of cargo by rail from Connecticut to New York City, it must go through Albany and then to New York City. Part of the reason for this is the lack of adequate rail crossings along the Hudson River and vertical clearance problems on the line between New York City and New Haven. Other factors impeding the development of freight rail include: the small size of the state makes trucking more competitive due to the short distances; the number of businesses that generate large volumes of freight has declined; the location of major intermodal facilities outside of the state (New Jersey's container port and the West Springfield rail yard) means goods originating or destined for Connecticut are being handled there and transported to and from Connecticut by truck; and Amtrak owns the rail line between New Haven and Springfield and charges high fees that discourage freight rail use.
- Seaports - There are three deepwater seaports in Connecticut located in New London, New Haven, and Bridgeport. The state owns and, therefore, controls only one (New London) of the ports. Because Connecticut ports have not or cannot respond to trends in the shipping industry, including containerization (i.e., products shipped in large enclosed containers) and the use of larger vessels requiring sizeable facilities, and the proximity to a major port in New Jersey, they essentially serve specialized niche markets. Even in this limited market, though, a number of problems constraining growth have been noted. For example, New Haven lacks an adequate rail connection and New London has limited warehousing, landside capacity, and only one side of the state pier has been operational.
- Airports - The state owns six airports. Five are small general aviation airports and one, Bradley International Airport, is the state's primary facility with regular major carrier service. Recently a number of reports have been issued critical of the governing structure, management style, planning considerations, and operation of Bradley. A principal criticism was that the airport was viewed mostly as a transportation facility by ConnDOT and not as an economic asset and a potential development engine. In addition, ConnDOT has been criticized for a lack of commuter and rail freight connection at the airport. Industry trends, such as the use of larger aircraft and the necessary change in the configuration of facilities to accommodate such planes also may affect the ability of Bradley to meet future demands. Finally, other airports not owned by the state, such as Tweed-New Haven and Sikorsky, which have been mentioned as possibly playing a larger role in the transportation network and in facilitating economic development, are not considered in the state's overall planning efforts.
It is also important to consider the improvements and developments occurring in other states. Because of Connecticut's size and the limitations of its facilities, effective links to the nation and world markets outside its borders are beyond the state's control. As discussed above, state residents are largely dependent on airports in New York for international flights, businesses depend on ports in other states for global access, and the major freight rail connection in the area is in Massachusetts.
Methodology and Report Organization
Information for this report was obtained from a number of sources. Those interviewed included staff of the Federal Highway Administration; Connecticut Departments of Transportation and Economic and Community Development; the Connecticut Economic Resource Center; officials from regional planning agencies; former ConnDOT officials; economists from the Connecticut Center for Economic Analysis; and representatives of several business organizations. General background literature in economic development and transportation planning was examined, as well as state statutes and federal law and regulations. Staff also reviewed reports from local, other state, and national studies dealing with economic development and transportation.
This report is divided into seven chapters. Chapter One examines the relationship between transportation and economic development. Chapters Two and Three outline the planning and priority setting processes of ConnDOT for highways, transit, airports, and seaports. Chapter Four discusses the Department of Economic and Community Development's interaction with ConnDOT on a planning level, while Chapter Five provides an overview of transportation financing. Chapter Six and Seven presents the committee's findings and recommendations.
Agency Response
It is the policy of the Legislative Program Review and Investigations Committee to provide agencies subject to a study with an opportunity to review and comment on the recommendations prior to publication of the final report. The response from the Department of Transportation is contained in Appendix A