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1、The Transportation Energy Institute(TEI)has commenced a study of transportation equity(TE)issues that exist in rural,tribal and urban communities,in particular,looking a how to reduce“energy burdens”on these communities.The ultimate question is how to transition to cleanertransportation options whil

2、e reducing socioeconomic gaps within the U.S.TEI has formed aworking group to explore these issues and to consider whether TEI ought to consider funding amore extensive study to more deeply examine the issues.Transportation equity is an issue thatdeserves an in-depth explanation.We will address that

3、 below.In summary,there is a lot of history and expertise developed on the topic of equity at the federal,state and local levels(though this whitepaper focuses on federal efforts).Moreover,the BidenAdministration has made equity,including TE,a major policy priority(see Inflation ReductionAct),includ

4、ing the development of data and tools to better assess disadvantaged communities(DACs)so that they can be better served.When it comes to personal mobility,most recent TEefforts have focused squarely on electrification.Other fuel/vehicle combinations,especially those linked to fossil fuels,have not b

5、een included inequity efforts and this may be problematic because,for example,rural and tribal drivers willlikely depend upon internal combustion engine vehicles(ICEVs)and conventional fuels for theforeseeable future.Are there wider,more diverse ways to achieve the TE goals of theAdministration that

6、 achieve the same objectives(i.e.reduce energy burdens as well asemissions)?Are existing TE efforts for electrification sufficient?These are two of the questionsthat could be explored further.This whitepaper first describes what TE is and how states/federal government have approachedTE in transporta

7、tion planning.It then discusses TE in the context of the AdministrationsJustice40 activities,and how equity has been considered in the rollout of the National ElectricVehicle Infrastructure(NEVI)Formula Program.The whitepaper concludes with suggestedquestions and gaps that could be the subject for f

8、urther research.MARCHMARCH 2024Whitepaper:Transportation EquityPrepared by Transport Energy Strategies Overview1TE is rooted in the environmental justice(EJ)movement,which is generally thought to have rootsin the early 1980s with a protest in the black community over PCB contamination in WarrenCount

9、y,North Carolina.1 This ultimately led to greater awareness of disproportionate impactsto people of color who lived in economically disadvantaged communities,and the mobilization ofthese communities to protest nationwide.In 1992,EJ activities around the country led to a call byPresident George Bush

10、Sr.for the establishment of an Environmental Equity Working Group,headed by EPA Administrator William Reilly,and the initiation of federally sponsored meetings onEJ with community leaders to seek solutions.President Bill Clinton carried on that work,issuing Executive Order 12898,Federal Actions toAd

11、dress Environmental Justice in Minority Populations and Low-Income Populations.2 Theexecutive order directed the federal government to“make achieving environmental justice partof its mission by identifying and addressing,as appropriate,disproportionately high and adversehuman health or environmental

12、 effects of its programs,policies,and activities on minoritypopulations and low-income populations.”It underscored the importance of using existing laws including the National Environmental Policy Act of 1969(NEPA),Title VI of the Civil Rights Act of1964(Title VI),and the Age Discrimination Act of 1

13、975 to implement EJ initiatives.However,EJwas never officially defined in the executive order.3 The Biden Administration updated theexecutive order in April 2023 and defined EJ as the:The Historical Roots of Transportation Equity:Environmental Justice 1 U.S.Department of Energy,Office of Legacy Mana

14、gement,Environmental Justice History athttps:/www.energy.gov/lm/environmental-justice-history (last accessed Sept.18,2023).2 Executive Order 12898 of February 11,1994 Federal Actions To Address Environmental Justice in MinorityPopulations and Low-Income Populations available at https:/www.archives.g

15、ov/files/federal-register/executive-orders/pdf/12898.pdf.3 Harvard University,Environmental&Energy Law Program,Federal Environmental Justice Tracker athttps:/eelp.law.harvard.edu/ejtracker/(last accessed Sept.18,2023).4 The White House,Executive Order on Revitalizing Our Nations Commitment to Enviro

16、nmental Justice for All,Apr.21,2023 at https:/www.whitehouse.gov/briefing-room/presidential-actions/2023/04/21/executive-order-on-revitalizing-our-nations-commitment-to-environmental-justice-for-all/.“just treatment and meaningful involvement of all people,regardless of income,race,color,national or

17、igin,Tribal affiliation,or disability,in agency decision-making and other Federalactivities that affect human health and the environment so that people(i)are fully protectedfrom disproportionate and adverse human health and environmental effects(including risks)and hazards,including those related to

18、 climate change,the cumulative impacts ofenvironmental and other burdens,and the legacy of racism or other structural or systemicbarriers;and(ii)have equitable access to a healthy,sustainable,and resilient environment inwhich to live,play,work,learn,grow,worship,and engage in cultural and subsistenc

19、epractices.“4Whitepaper:Transportation Equity2The Environmental Protection Agency(EPA)chairs an interagency working group(IWG),includingtribal nations,on the implementation of EJ efforts.To track strategy accomplishments,eachfederal agency on the EJ IWG creates Annual Implementation Progress Reports

20、 for submission toEPA.The Progress Reports assess major milestones accomplished 5 and facilitate agencyassessment to continue to develop methods and mechanisms for strengthening environmentaljustice efforts.Multiple transportation related federal agencies are responsible for EJ progress.Strategies f

21、or each were last updated before the closure of the Obama Administration.6Transportation Equity&the Biden AdministrationIn his first week in office,President Biden set EJ priorities through executive order affecting thedistribution of federal funds,set agency regulatory and enforcement priorities,cr

22、eated newadvisory bodies and agency offices,and set international policy.This included establishing theJustice40 Initiative,requiring all federal agencies to issue equity plans,and requiring EPA and theDepartment of Justice(DOJ)to establish a comprehensive EJ enforcement strategy.5 Inaddition,for th

23、e first time,the Biden Administration defined the term equity under ExecutiveOrder 13985:According to DOT,equity in transportation:5 Harvard University,Environmental&Energy Law Program,Environmental Justice and Equityhttps:/eelp.law.harvard.edu/2022/09/environmental-justice-equity/(last updated Sept

24、.26,2022).6 Federal Highway Administration,Federal Transit Administration,Equity in Transportation athttps:/www.planning.dot.gov/planning/topic_transportationequity.aspx(last accessed Sept.18,2023).7 The White House,Executive Order 13985 on Further Advancing Racial Equity and Support for Underserved

25、Communities Through The Federal Government,Feb.16,2023 at https:/www.whitehouse.gov/briefing-room/presidential-actions/2023/02/16/executive-order-on-further-advancing-racial-equity-and-support-for-underserved-communities-through-the-federal-government/.“The term equity means the consistent and syste

26、matic fair,just,and impartial treatment ofall individuals,including individuals who belong to underserved communities that have beendenied such treatment,such as Black,Latino,and Indigenous and Native American persons,Asian Americans and Pacific Islanders and other persons of color;members of religi

27、ousminorities;lesbian,gay,bisexual,transgender,and queer(LGBTQ+)persons;persons withdisabilities;persons who live in rural areas;and persons otherwise adversely affected bypersistent poverty or inequality.”7“Seeks fairness in mobility and accessibility to meet the needs of all community members.Acen

28、tral goal of transportation is to facilitate social and economic opportunities by providingequitable levels of access to affordable and reliable transportation options based on theneeds of the populations being served,particularly populations that are traditionallyunderserved.”6Whitepaper:Transporta

29、tion Equity3The Justice40 Initiative is designed to direct significant federal investments to communities witha history of disinvestment or discrimination,or that bear a disproportionate share ofenvironmental and climate change-related burdens.Specifically,President Bidens ExecutiveOrder 14008 requi

30、red the Council on Environmental Quality(CEQ)and other agencies to issuerecommendations within 120 days on how to direct certain Federal investments such that“40percent of the overall benefits flow to disadvantaged communities.”8 While the order did notdefine“benefits,”it named as examples clean ene

31、rgy investments,transit,affordable andsustainable housing,training and workforce development,remediation and reduction of legacypollution,and clean water infrastructure.It also did not define“disadvantaged communities,”leaving it to the agencies.Some agencies,including DOE and DOT,have developed the

32、ir own interim definitions to accountfor specific equity burdens.For example,DOTs definition accounts for walkability,transportationburden,traffic proximity,and private vehicle access.9 It includes data for 22 indicators collectedat the census tract level and grouped into six(6)categories of transpo

33、rtation disadvantage thatinclude the following:Transportation access disadvantage identifies communities and places that spend more,andtake longer,to get where they need to go.Health disadvantage identifies communities based on variables associated with adversehealth outcomes,disability,as well as e

34、nvironmental exposures.Environmental disadvantage identifies communities with disproportionately high levels ofcertain air pollutants and high potential presence of lead-based paint in housing units.Economic disadvantage identifies areas and populations with high poverty,low wealth,lackof local jobs

35、,low homeownership,low educational attainment,and high inequality.Resilience disadvantage identifies communities vulnerable to hazards caused by climatechange.Equity disadvantage identifies communities with a high percentile of persons(age 5+)whospeak English less than well.10DOEs definition looks a

36、t fossil fuel dependence and energy burden and includes the top 20percent of census tracts in each state to ensure each state is represented.11 8 The White House,Executive Order 14008 on Tackling the Climate Crisis at Home and Abroad,Jan.27,2021 athttps:/www.whitehouse.gov/briefing-room/presidential

37、-actions/2021/01/27/executive-order-on-tackling-the-climate-crisis-at-home-and-abroad/.9 See Department of Transportation,Justice40 Initiative at https:/www.transportation.gov/equity-Justice40(lastaccessed Sept.18,2023)(hereinafter“DOT Justice40”).10 U.S.Department of Transportation,Transportation D

38、isadvantaged Census Tracts(Historically DisadvantagedCommunities)Interim Definition Methodology athttps:/www.transportation.gov/priorities/equity/justice40/transportation-disadvantaged-census-tracts-historically-disadvantaged(last updated Apr.27,2023).11 See Department of Energy,Justice40 Initiative

39、 at https:/www.energy.gov/diversity/justice40-initiative(lastaccessed Sept.18,2023).Whitepaper:Transportation Equity4New Tools to Better Identify DACs for TE PurposesNew tools have been developed under Justice40 to better identify DACs,driven by executiveorder.Under Executive Order 14008,the Climate

40、 and Economic Justice Screening Tool(CEJST)was created to identify and define DACs that are marginalized,underserved,and overburdenedby pollution for the purposes of Justice40 Initiative.12 The tool has an interactive map and usesdatasets that are indicators of burdens in eight categories:climate ch

41、ange,energy,health,housing,legacy pollution,transportation,water and wastewater,and workforce development.Areproduction is shown in Figure 1.DACs are shown in gray.Figure 1:CEQs CEJST ToolSource:CEQ,2022There are other tools that have been developed as well,specifically for TE.DOTs EquitableTranspor

42、tation Community(ETC)Explorer is an interactive web application that uses 2020Census Tracts and data to explore the cumulative burden communities experience as a result ofunderinvestment in transportation systems in the following five components:transportationinsecurity,climate and disaster risk bur

43、den,environmental burden,health vulnerability,andsocial vulnerability.13 It is designed to complement the CEJST by providing users deeper insightinto the transportation disadvantage component of CEJS.Its Transportation DisadvantagedCensus Tracts tool is an option for determining whether a community

44、is economicallydisadvantaged.It uses six transportation disadvantaged indicators including health,environmental,economic,resilience,equity and transportation access in assessing disadvantage.12 Council on Environmental Quality,Climate and Economic Justice Screening Tool:Frequently Asked Questions,Fe

45、bruary 2022 at https:/www.whitehouse.gov/wp-content/uploads/2022/02/CEQ-CEJST-QandA.pdf.13 Department of Transportation,USDOT Equitable Transportation Community(ETC)Explorer athttps:/ accessedSept.18,2023).Whitepaper:Transportation Equity5The Federal Highway Administration(FWHA)has developed a Plann

46、ing and Equity Tool thatenables transportation agency users to view their transportation improvement program(TIP)projects with available national,equity-related data sets.14 The tool is primarily targetedtowards users from transportation agencies that are considering equity in their planning.TheScre

47、ening Tool for Equity Analysis of Projects(STEAP)is a GIS project-level screening toolwhere states and metropolitan planning organizations(MPOs)can assess data layers that includerace,color,and national origin using data from the U.S.Census Bureaus American CommunitySurvey.It provides project sponso

48、rs with the capability to screen their projects for potential Title VIcovered populations(EJ communities)prior to the start of the NEPA process,inform projectsponsors of affected populations in their study area,and determine early ways to avoid ormitigate potential impacts to those populations.The H

49、EPGIS tool,a tool that existed prior to thecurrent Administration,now includes project equity data.It also includes designated alternativefuel corridors for electric vehicles(EVs),compressed natural gas(CNG),liquefied petroleum gas(LPG),liquefied natural gas(LNG)and hydrogen.15 States and MPOs use H

50、EPGIS for planningpurposes and to comply with Title VI and federal EJ requirements.EJScreen is EPAs existing EJ mapping and screening tool that provides the Agency with anationally consistent dataset and approach for combining 13 environmental and sevendemographic socioeconomic indicators for geogra

51、phic areas.16 Environmental indicatorsinclude particulate matter(PM),ozone,diesel PM,air toxins and traffic proximity,among others.Demographic socioeconomic indicators include people of color,low income,unemploymentrate,limited English speaking,less than high school education,under the age of 5 or o

52、ver the ageof 64.With respect to implementing the National Electric Vehicle Infrastructure(NEVI)program,DOTand DOE through Argonne National Laboratory developed an EV Charging Justice40 MappingTool,shown in Figure 2,that overlays alternative fuel corridors and DACs.14 Federal Highway Administration,

53、Planning and Equity Tool,https:/plan-equity-tool- Sept.18,2023).15 HEPGIS at https:/hepgis.fhwa.dot.gov/fhwagis/#16 Environmental Protection Agency,What is EJScreen?at https:/www.epa.gov/ejscreen/what-ejscreen(lastupdated June 26,2023).Whitepaper:Transportation Equity6Figure 2:EV Charging Justice40

54、Mapping ToolIn short,the equity initiatives deployed under the Biden Administration emphasize the use ofdata,mapping and analysis to more precisely identify DACs so that those communities can bebetter identified,understood and engaged,and so that federal funding,projects and assistancereach those co

55、mmunities more effectively.In the TE context,these tools are also meant to helpstates and MPOs do the same as they conduct transportation planning.Electric Vehicles as a Focus for TEThe concept of equity has become part of the broader conversation around the scale up of EVsnationwide.Although the se

56、condary/used and more affordable EV market is beginning to slowlydevelop,many in DACs view EVs as an unaffordable means of practical transportation,compounded by a lack of EV charging infrastructure.This appears to be true even in more well-developed markets like California.17 The Natural Resources

57、Defense Council(NRDC)has noted:1 See e.g.,Berkeley Law,Driving Equity:Policy Solutions to Accelerate Electric Vehicle Adoption in Lower-IncomeCommunities,May 2022 at https:/www.law.berkeley.edu/wp-content/uploads/2022/04/Driving-Equity-May-2022.pdf.“Even with significant state rebates and lower tota

58、l ownership costs driven by cheaper fueling andmaintenance,new electric vehicles often are out of reach for lower-income residents.Lower-income Californians areless likely to have access to the capital necessary to buy new electric vehicles(with higher upfront costs thanconventional vehicles),as wel

59、l as access to charging stations and information on zero-emission vehicle benefits andincentive programs.”1 See also Courtney Lindwall,Natural Resources Defense Council(NRDC),Making Electric Vehicle Charging MoreEquitable Is Key to Our Clean Vehicle Future,May 23,2023 at https:/www.nrdc.org/stories/

60、making-electric-vehicle-charging-more-equitable-key-our-clean-vehicle-future(hereafter“NRDC Article”).1 See NRDC Article.Source:Argonne National Laboratory“Currently,most of the nations public chargers remain clustered in areas where wealthy,predominantly white,early EV adopters live.Thats not altog

61、ether surprising,givencharging station developers went where there was demand.But this has also createdareas with little to no public charging access that often fall along racial andsocioeconomic lines.”18Whitepaper:Transportation Equity7Initial research shows that EVs(or zero emission vehicles(ZEVs

62、)are viewed as a primary solutionfor achieving TE in the personal mobility space.To date,alternative powertrains(e.g.,hybrids)and fuels(including low carbon and e-Fuels)have not been part of the TE conversation.In fact,the reverse is true:They are not viewed as a potential solution at all because of

63、 their connectionto fossil fuels which contribute to climate change,air pollution and adverse public health.TheNRDC notes:The focus of the Biden Administrations TE efforts for personal mobility thus has been to ensurethat as the EV market scales up,the adoption trend becomes expansive and more inclu

64、sive.Themechanism for doing this was through the Infrastructure Investment and Jobs Act(IIJA)whichcreated the NEVI program.NEVI will direct$5 billion over the next five years to help build 500,000EV chargers across the country,particularly along national highways,by 2030.20 States wererequired to su

65、bmit implementation plans to DOT that were required to address equity.Complimenting the NEVI program is the Charging and Fueling Infrastructure Discretionary GrantProgram(CFI)which offers an additional$2.5 billion,competitively,for EV charging,hydrogen,propane,and natural gas fueling infrastructure.

66、The CFI program is generally recognized as a toolto reach rural and underserved communities that may be overlooked under the NEVI programwhich is primarily focused on corridor charging.All state plans,for the NEVI program,have been approved with$615 million distributed to thestates in 2022 and$885 m

67、illion in 2023.21 How did states address equity for DACs in these plans,particularly for those in rural,tribal and urban areas?A few states that were surveyed usedArgonnes EV Charging Justice40 Mapping Tool to identify DACs,providing a map or table of thoseareas in their submission along with commit

68、ments to engage those communities as chargingsites begin to be selected.Applicants under the CFI program are required to submit an 19 See NRDC Article.20 Federal Highway Administration,National Electric Vehicle Infrastructure Formula Program,Feb.10,2022 athttps:/www.fhwa.dot.gov/bipartisan-infrastru

69、cture-law/nevi_formula_program.cfm.21 See Joint Office of Energy and Transportation,State Plans for Electric Vehicle Charging,https:/driveelectric.gov/state-plans/(last accessed Sept.18,2023).“For some,a lack of charger access may hinder EV adoption.And,ultimately,all residentsin those communities e

70、nd up missing out on several important EV-related benefitsnamely cleaner air and better health.Thats because these are often the same peoplewho live in high-traffic and industrial areas with the highest levels of harmful tailpipe andfossil fuel pollution.Chronic exposure to such pollutants can have

71、devastating effects onhealth,from asthma to a heightened cancer risk to premature death.This is why advocates emphasize that replacing gas-and diesel-powered vehicles withcleaner electric ones must go hand in hand with equitably deploying EV charginginfrastructure.And the communities that have been

72、most harmed by the currenttransportation system must be included in the shaping of related policies andinvestments.”19Whitepaper:Transportation Equity8 assessment using the DOE/Argonne mapping tool.Are the TE efforts sufficient for DACs to reallyreceive the benefits intended under Justice40 and NEVI

73、 and CFI?It is not clear,but it is still earlyin the development process.Next StepsThe initial concept behind the TEI working group and whitepaper was to investigate majorbarriers to cleaner transportation options in DACs.This is beginning to be done by theAdministration through its equity efforts,b

74、ut again,the focus has generally been onelectrification.In many areas,electrification may not reduce the overall energy burden for DACsin the near future.The issue of equity could benefit from a study that more fully addresses thebarriers and costs to cleaner transportation options in DACs,focusing

75、on rural,tribal and urbanareas and perhaps selecting representative DACs in these three areas for further study.Such astudy could include the transportation needs,uses and burdens for these DACs,along with airquality and other equity-related criteria noted above.It could look at existing and planned

76、 EVinfrastructure in these areas,community improvements through new amenities,as well asexisting low carbon fuel infrastructure,ultra-low carbon fuel conversions for existing vehicles,thecurrent fuels distribution logistics and supply chain,as well as safety training demands by firstresponders,relat

77、ed costs and environmental health considerations related to path optionsaddressing TE.With each potential next step,perspective from representatives of DACs is critical.Further,state-level DAC engagements should be assessed as to whether or not all community outreach isoccurring in rural,tribal,and

78、urban communities.About TEIThe Transportation Energy Institute is a non-advocacy research organization dedicated tostudying transportation energy.We are the most diverse organization in the fuels and vehiclesmarkets,creating a place in which stakeholders of all persuasions can come together tocollab

79、orate,share perspectives and commission objective research analyzing the challenges andopportunities facing the market.https:/www.transportationenergy.org/About Transport Energy StrategiesTransport Energy Strategies is a consultancy that provides market,policy and technologyintelligence,research analysis and strategic advice consulting services to clients on a range ofglobal transport energy issues,including low carbon fuels,electrification,hydrogen and othernovel fuels and technologies.https:/ Equity9