Testimony
of the Honorable Janice Hahn
Member,
Los Angeles City Council
Chairwoman,
Alameda Corridor Transportation Authority
Joint
Hearing
of the
U.S.
Senate
Environment
& Public Works Committee
and
Finance
Committee
September 25, 2002
Mr. Chairmen, and
members of the joint Committees, good morning, and thank you for inviting me here today. My name is Janice Hahn. I am a Los Angeles City Councilwoman and
serve as Chairwoman of the Governing Board of the Alameda Corridor Transportation
Authority. The Alameda
Corridor Transportation Authority is a joint-powers authority created by the
Cities of Long Beach and Los Angeles in 1989 to oversee the financing, design
and construction of the Alameda Corridor.
The Governing Board of the Alameda Corridor Transportation Authority is
a seven-member board representing the cities of Los Angeles and Long Beach, the
ports of Los Angeles and Long Beach and the Los Angeles County Metropolitan
Transportation Authority (MTA).
On behalf of City of Los Angeles Mayor James Hahn, City of
Long Beach Mayor Beverly O’Neill, the Corridor Authority’s Governing Board, and
our CEO Jim Hankla, I am honored to be here.
The efficient movement of cargo through our
nation's ports and on our rail lines and highways is a critical issue not only
in Southern California -- which has the nation's two busiest ports -- but the
nation as a whole. I am honored to be here.
INTRODUCTION
We are commonly called ACTA. ACTA is the public agency that built the Alameda Corridor, a
20-mile-long freight rail expressway linking the Ports of Los Angeles and Long
Beach to the rail yards near downtown Los Angeles. The project was monumentally
complex, running through eight different government jurisdictions in urban Los
Angeles County, requiring multiple detailed partnerships between public and
private entities, and presenting extensive engineering challenges.
One of the key partnerships that has been vital over the
years has been with the United States Congress. We greatly appreciate the strong support you and your colleagues
provided to ACTA in developing the innovative loan from the Department of
Transportation. We are particularly
thankful for the strong leadership demonstrated by many of you in Congress
including our two distinguished Senators, Dianne Feinstein and Barbara Boxer
along with California Congressman Stephen Horn and Congresswoman Juanita
Millender-McDonald. Without their
vision and support it is unlikely the Alameda Corridor would be in operation today,
strengthening the nation’s global economic competitiveness.
Over the years there wereas many who
doubted the Corridor project could be built, let alone on time and on
budget. But after more than 15 years of
planning and five years of constructing the $2.4 billion Alameda Corridor, one
of the nation's largest public works projects opened on time and on budget on
April 15. Today, more than 35 freight
trains per day use the Alameda Corridor, handling containers loaded with shoes,
clothing, furniture and other products bound for store shelves throughout the
United States. They also deliver to
the ports U.S. goods such as petroleum products, machine parts, and
agricultural products for shipment to worldwide markets. A trip from the Ports of Los Angeles and
Long Beach to the transcontinental rail yards near downtown Los Angeles used to
take more than two hours. It now takes
about 45 minutes. As cargo volumes
increase, this enhanced speed and efficiency will be critical; more than 100
trains per day are expected on the Alameda Corridor by the year 2020. It is important to note that ACTA is
collecting revenue from these rail shipments in amounts sufficient to meet its
current and future financial obligations.
MODEL FOR SUCCESS
Because of our success, the Alameda Corridor is considered
a model for how major public works projects should be constructed. The Corridor illustrates the significance
of intermodalism to the future of our economic and transportation systems. Among those praising the Alameda
Corridor have been Transportation Secretary Norman Mineta – a long time
supporter and friend of the Corridor project – and three of his predecessors,
one from the first Bush administration and two from the Clinton administration.
At our
grand opening ceremony last April, Secretary Mineta said this about the Alameda
Corridor: "Its successful completion demonstrates what we can accomplish
with innovative financing and public-private cooperation, and it provides a
powerful paradigm for the kinds of intermodal infrastructure investment we want
to encourage as we begin working with the Congress to develop legislation
reauthorizing America's surface transportation programs." We were also pleased to see that just this
month in testimony before a joint hearing of the Environment and Public Works
and Commerce Committees, Associate Deputy Secretary of Transportation Jeff
Shane praised the Corridor project as a national model. The project, he said, "will have
far-reaching economic benefits that extend well beyond Southern
California."
Similarly, in an article written for TrafficWorld, former
U.S. Department of Transportation Secretaries Federico Pena and Samuel Skinner
said: "The Alameda Corridor is of national significance not only because
of its direct economic impact on jobs, taxes and commodity prices but because
the corridor serves as a model of how our country can and must expand and
modernize our freight transportation system if we are to remain a world-class
trading partner." In addition,
former U.S. Department of Transportation Secretary Rodney Slater has also been
a supporter of the Alameda Corridor project.
We are flattered by the accolades and pleased and proud to
share our experience with those who hope to benefit from it. In fact, one of the goals of the ACTA
Governing Board is to support other projects that promote international trade
and the efficient movement of cargo.
The key to our success can be attributed to two major
themes that guided us throughout the planning, financing and construction of
the project: First is
multi-jurisdictional cooperation. The
Alameda Corridor is built on the partnerships forged between competitive public
agencies and between those agencies and the private sector. We have demonstrated that governments can
work together, and they can work with the private sector, putting aside
competition for the benefit of greater economic and societal good. Second is direct and tangible community
benefits. The Alameda Corridor provided
direct community benefits in the form of significant traffic congestion relief,
job training and other programs. We
have proven that communities don't have to sacrifice quality of life to benefit
from international trade and port and economic activity.
PROJECT NEED AND PLANNING
The roots of our multi-jurisdictional cooperation began to
take hold in the early 1980s, when a committee was formed by the Southern
California Association of Governments to study ways to accommodate burgeoning
trade at the Ports of Los Angeles and Long Beach. The panel included representatives of the ports, the railroad and
trucking industries, the Army Corps of Engineers as well as local elected
officials and others. The ports had
projected – accurately, it turns out – massive cargo increases driven by the
growing use of intermodal containers transferred directly from ships to rail
cars and trucks. The volume of
containers crossing the wharves doubled in the 1990s and last year reached more
than 10 million 20-foot containers per year.
That figure is expected to exceed 36 million by the year 2020. Last year, the ports handled more than $200
billion in cargo, or about one-quarter to one-third of the nation's waterborne
commerce. This has had huge ripple
effects in Southern California and across the country in the form of jobs, tax
revenues and general economic activity.
In the early 1980s, there was growing concern about the
ability of the ground transportation system to accommodate increasing levels of
trade-related rail and truck traffic in the port area. By 1989, the cities and ports of Los Angeles
and Long Beach had joined forces to form a joint powers authority that later
became the Alameda Corridor Transportation Authority. The agency then selected a preferred project: consolidating four
branch lines serving the ports into a 20-mile freight rail expressway that is
completely grade-separated, including a 10-mile-long 30-foot-deep trench that
runs through older, economically disadvantaged industrial neighborhoods south
of downtown Los Angeles. The project
would eliminate traffic conflicts at more than 200 street-level railroad
crossings.
PROJECT FINANCING AND FUNDING
Our broad base of cooperation is also evident in the
project's unique finance plan, which draws revenue from a range of both public
and private sources.
The linchpin of this funding plan was designation of the
Alameda Corridor as a "high-priority corridor" in the 1995 National
Highway System Designation Act. That
designation cleared the way for Congress to appropriate $59 million needed to
back a $400 million loan to the project from the U.S. Department of
Transportation. As mentioned
previously, Senators Boxer and Feinstein, along with California Congressman
Stephen Horn and Congresswoman Juanita Millender-McDonald and other members of
our Congressional delegation, were instrumental in helping to form a bipartisan
Congressional coalition to support this effort. It is important to point out that this financing arrangement
preceded the passage of TEA-21, and the associated provisions known as TIFIA. ACTA was pleased to work cooperatively with
Department of Transportation officials and Congressional staff, to be a
“trailblazer” with the Office of Management and Budget and forge an innovative
arrangement to finance an intermodal project of national significance.
Similarly, at the state level, ACTA worked closely with
both Republican and Democrat members of the Legislature, Governor Pete Wilson
along with the California Business, Transportation and Housing Agency, the
California Transportation Commission and the Department of Transportation to
include the project in short- and long-range plans and to expedite state
funding. At the local level, ACTA
coordinated closely with Mayor Beverly O'Neill of Long Beach and then-Mayor
Richard Riordan of Los Angeles for support of the project, and ACTA worked closely
with the Los Angeles County Metropolitan Transportation Authority to set aside
State and Federal grant funds and local transportation sales tax revenues for
use on the Alameda Corridor. And, of
course, the ports provided almost $500 million in start-up funding and for the
purchase of rights-of-way.
The collective assistance offered by federal, state and
local agencies and elected officials provided the base funding -- the leverage,
if you will -- for the biggest piece of our financing package -- more than $1.1
billion in proceeds from revenue bonds sold by ACTA. The bonds and the federal loan are being retired by use fees paid
by the railroads.
The Use and Operating Agreement between ACTA and Burlington
Northern and Santa Fe Railway and Union Pacific Railroad, approved in October
1998, is truly unprecedented. Never before had the competitive railroads
cooperated on a project to the extent that they did on the Alameda
Corridor. Like the ports, the BNSF and
the UP put aside their rivalry to cooperate on a project with positive economic
implications at the national, regional and local levels.
In the end, funding for the Alameda Corridor came from
multiple public and private sources and resulted from bipartisan support. The funding breaks down roughly like this:
46% from ACTA revenue bonds; 16% from the U.S. Department of Transportation
loan; 16% from the ports; 16% from California state and local grants, much of
it administered by the Los Angeles County Metropolitan Transportation
Authority, and 6% from other sources.
PROJECT CONSTRUCTION
As with project planning and funding, construction also
required extensive cooperation and coordination among multiple entities.
The Alameda Corridor included, among other elements,
construction of 51 separate bridge structures, relocation of 1,700 utilities,
pouring of 27,000 concrete pilings and removal of 4 million cubic yards of dirt
excavated to make way for the Mid-Corridor Trench. More than 1,000 professionals from 124 engineering and
construction management firms, as well as more than 8,000 construction workers,
contributed to the project. Moreover,
construction occurred in eight different government jurisdictions. Any project of the Alameda Corridor's size
and scope inevitably encounters hurdles in the construction process that can
lead to delays.
There are many reasons why our project stayed on schedule,
but at the top of the list are our permit facilitating agreements with corridor
communities and utility providers, and our decision to use a design-build contract
for the Mid-Corridor Trench.
ACTA saved an estimated 18 months on project delivery by
utilizing the design-build approach for our largest contract, the Mid-Corridor
Trench. The design-build approach
allows for the overlapping of some design and construction work and provides
greater control over cost and scheduling.
Design-build authority was obtained through an ordinance approved by the
Los Angeles City Council. This enabled
ACTA to subject the contractor to significant liquadative damages if the
contract was not completed by a fixed date at a fixed price.
Before construction began, ACTA negotiated separate
Memoranda of Understanding with each city along the route, detailing expedited
permitting processes, haul routes for construction traffic and the protocol for
lane closures and temporary detours. By
agreeing in advance on these and other issues, we streamlined a complex
construction process and saved time and money.
DIRECT COMMUNITY BENEFITS
One key to securing the MOUs and additional community
cooperation and support was to deliver on our promises of direct community
benefits.
By eliminating more than 200 at-grade railroad crossings,
the Alameda Corridor is projected to reduce emissions from idling trucks and
automobiles by 54 percent, slash delays at railroad crossings by 90 percent and
cut noise pollution by 90 percent. The
project also reduces traffic congestion through improvements to Alameda
Street. But from the start, the ACTA
Governing Board wanted to leave a lasting legacy beyond construction of a
public works project. This was
accomplished by creating several community-based programs.
Through its contractors and various community partnerships,
ACTA administered several programs designed to provide local residents and
businesses with direct benefits that would long outlive construction. For example:
The
Alameda Corridor Business Outreach Program offered technical assistance,
networking workshops and aggressive outreach to provide disadvantaged business
enterprises with the tools they need to compete for work on the project. Disadvantaged firms – known as DBEs – have
earned contracts worth more than $285 million, meeting our goal for 22 percent
DBE participation.
§
The goal of our Alameda Corridor Job Training and
Development Program was to provide job training and placement services to 1,000
residents of corridor communities. We
exceeded that goal - almost 1,300 residents received construction
industry-specific job training, and of those 637 were placed in
construction-trade union apprenticeships.
The
Alameda Corridor Conservation Corps provided life skills training to 447 young
adults from corridor communities, exceeding the goal of 385. While studying for high school class
credits, these young adults completed dozens of community beautification
projects in corridor communities, including graffiti eradication, tree-planting
and debris pickup. After completing the
three-month program, recruits had the option to join the Los Angeles or Long
Beach conservation corps chapters full time, phase into a city college program
or enroll in a business, vocational, trade school or apprenticeship program.
§
And finally, in partnership with the
World Trade Center Association Los Angeles-Long Beach, the Alameda Corridor
Transportation Authority International Trade Development Program has provided
technical training and international trade-specific job skills to 30
entry-level job seekers in local communities.
In addition, some 600 local companies seeking inroads into the import or
export business have been identified for one-on-one technical assistance. That assistance is being provided throughout
this year. This unique program is
helping local residents and businesses capitalize on international trade.
These community-based programs ensured that local residents
and businesses did not get left behind, that they would receive direct and
long-lasting benefits from the project.
THE FUTURE
The efficient movement of cargo through our nation's ports
and on our rail lines and highways is a critical issue not only in Southern
California -- which has the nation's two busiest ports -- but the nation as a
whole. The Alameda Corridor is truly
the backbone of an emerging trade corridor program in Southern California. Already, others are following our lead, including
governmental agencies in Los Angeles, Orange, San Bernardino, and Riverside
Counties who are building grade-separation projects.rces to build
rail-related improvements.
In addition, ACTA and the California Department of
Transportation are working under an innovative cooperative agreement to develop
plans for a Truck Expressway that would provide a “life-line” link between Terminal Island at the Ports and the
Pacific Coast Highway at Alameda Street.
The Alameda Corridor Truck Expressway is intended to speed the flow of
containers into the Southern California marketplace. Environmental reports are
being prepared, and the project could be ready for approval as early as March
2003. At ACTA, we believe that by
restructuring our federal loan we can undertake this critical Truck Expressway
project without any additional federal financial support.
IMPLICATIONS AND
RECOMMENDATIONS
The Alameda Corridor not only creates a more efficient way
to distribute cargo, but it also boosts the regional and national economies by
keeping the ports competitive and capable of generating additional economic
growth. Moreover, it provides direct,
long-lasting benefits to local residents and companies, benefiting the entire
region with a legacy well beyond actual construction. In short, the Alameda Corridor has demonstrated the benefit of
investment in well-planned and well-executed intermodal transportation
infrastructure.
As your committees, the full Congress, and the U.S.
Department of Transportation begin the TEA-21 reauthorization process,
including the formulation of policies to address growing freight rail and truck
traffic congestion and other challenges posed by international trade, we
respectfully offer these policy recommendations, based on our experience with the
Alameda Corridor:
§
The planning and funding of
intermodal projects of national significance, directly benefiting international
trade, should be sponsored at the highest levels within the Office of the
Secretary of Transportation. There
should be a national policy establishing the linkage between the promotion of
free trade
and support for the critical intermodal infrastructure moving goods to every
corner of the United States.
Public-private partnerships do in fact work and should be promoted and
encouraged by federal transportation legislation.
§
A specific funding category is needed
to support intermodal infrastructure projects, and trade connector
projects. Consideration should be given
to new and innovative funding strategies for the maritime inter-modal systems,
infrastructure improvements enhancing goods movement.
§
The Alameda Corridor project
benefited from a Department of Transportation willing to undertake risk and
provide loan terms that were not available on a commercial basis. This federal participation gave private
investors confidence in the project and made bond financing possible.
Most important, in my mind, is this: The success of the Alameda Corridor has
shown that federal investment in trade-related infrastructure can benefit the
economy without sacrificing quality-of-life issues.
Mr. Chairmen, once again, thank you for inviting me here
today. That concludes my remarks. I would be happy to address any questions.