Examination of Transit Agency Coordination with Electric Utilities (2024)

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TCRP Synthesis 175 Transit Cooperative Research Program Sponsored by the Federal A SYNTHESIS OF TRANSIT PRACTICE Transit Administration Examination of Transit Agency Coordination with Electric Utilities 

TCRP OVERSIGHT AND PROJECT TRANSPORTATION RESEARCH BOARD 2024 EXECUTIVE COMMITTEE* SELECTION COMMISSION* CHAIR OFFICERS Jeanne Krieg Chair: Carol A. Lewis, Professor, Transportation Studies, Texas Southern University, Houston Eastern Contra Costa Transit Authority (retired) Vice Chair: Leslie S. Richards, General Manager, Southeastern Pennsylvania Transportation Authority VICE CHAIR (SEPTA), Philadelphia Jameson Auten Executive Director: Victoria Sheehan, Transportation Research Board, Washington, DC Lane Transit District MEMBERS SECRETARY/TREASURER Ryan I. Daniel Michael F. Ableson, CEO, Arrival Automotive–North America, Detroit, MI St. Cloud Metro Bus James F. Albaugh, President and CEO, The Boeing Company (retired), Scottsdale, AZ Carlos M. Braceras, Executive Director, Utah Department of Transportation, Salt Lake City IMMEDIATE PAST CHAIR Douglas C. Ceva, Vice President, Customer Lead Solutions, Prologis, Inc., Jupiter, FL Doran J. Barnes Nancy Daubenberger, Commissioner of Transportation, Minnesota Department of Transportation, St. Paul Foothill Transit Marie Therese Dominguez, Commissioner, New York State Department of Transportation, Albany MEMBERS Garrett Eucalitto, Commissioner, Connecticut Department of Transportation, Newington Mallory R. Avis Chris T. Hendrickson, Hamerschlag University Professor of Engineering Emeritus, Carnegie Mellon City of Battle Creek Transit University, Pittsburgh, PA Alva Carrasco Randell Iwasaki, President and CEO, Iwasaki Consulting Services, Walnut Creek, CA Burns Engineering Ashby Johnson, Executive Director, Capital Area Metropolitan Planning Organization (CAMPO), Austin, TX Dorval Ronald Carter, Jr. Joel M. Jundt, Secretary of Transportation, South Dakota Department of Transportation, Pierre Chicago Transit Authority Hani S. Mahmassani, W.A. Patterson Distinguished Chair in Transportation; Director, Transportation Desmond Cole Southeastern Pennsylvania Transportation Center, Northwestern University, Evanston, IL Authority Scott C. Marler, Director, Iowa Department of Transportation, Ames Francis “Buddy” Coleman Ricardo Martinez, Adjunct Professor of Emergency Medicine, Emory University School of Medicine, Clever Devices Ltd. Decatur, GA Faye DiMassimo Michael R. McClellan, Vice President, Strategic Planning, Norfolk Southern Corporation, Norfolk, VA Chatham Area Transit Russell McMurry, Commissioner, Georgia Department of Transportation, Atlanta Carolyn Flowers Craig E. Philip, Research Professor and Director, VECTOR, Department of Civil and Environmental InfraStrategies LLC Engineering, Vanderbilt University, Nashville, TN David Harris New Mexico Department of Transportation Steward T.A. Pickett, Distinguished Senior Scientist, Cary Institute of Ecosystem Studies, Millbrook, NY Vince Huerta Susan A. Shaheen, Professor and Co-director, Transportation Sustainability Research Center, University of East Texas Council of Governments California, Berkeley Joseph Leader Marc Williams, Executive Director, Texas Department of Transportation, Austin HDR Benjamin Limmer EX OFFICIO MEMBERS Connecticut Department of Transportation Bacarra Mauldin Michael R. Berube, Deputy Assistant Secretary for Sustainable Transportation, U.S. Department Memphis Area Transit Authority of Energy, Washington, DC Jessica Mefford-Miller Shailen Bhatt, Administrator, Federal Highway Administration, U.S. Department of Transportation, Valley Metro Washington, DC Brad Miller Amit Bose, Administrator, Federal Railroad Administration, Washington, DC Pinellas Suncoast Transit Authority (PSTA) Tristan Brown, Deputy Administrator, Pipeline and Hazardous Materials Safety Administration, Elizabeth Presutti Charlotte Area Transit System U.S. Department of Transportation, Washington, DC Daniel J. Raudebaugh Steven Cliff, Executive Officer, California Air Resources Board, Sacramento Center for Transportation and the Environment Rand Ghayad, Senior Vice President, Association of American Railroads, Washington, DC Jeffrey Rosenberg LeRoy Gishi, Chief, Division of Transportation, Bureau of Indian Affairs, U.S. Department of the Interior, Amalgamated Transit Union Germantown, MD Bernard Schmidt William H. Graham, Jr. (Major General, U.S. Army), Deputy Commanding General for Civil and NextEra Energy Emergency Operations, U.S. Army Corps of Engineers, Washington, DC Justin Stuehrenberg Robert C. Hampshire, Deputy Assistant Secretary for Research and Technology, U.S. Department of Madison Metro Transit Frank White, III Transportation, Washington, DC Kansas City Area Transportation Authority Sue Lawless, Acting Deputy Administrator, Federal Motor Carrier Safety Administration, Washington, DC David C. Wilcock Niloo Parvashtiani, Engineer, Mobility Consultant Solutions, Iteris Inc., Fairfax, VA, and Chair, TRB Young Vanasse Hangen Brustlin, Inc. Members Coordinating Council Kimberly J. Williams Sophie Shulman, Acting Administrator, National Highway Traffic Safety Administration, Washington, DC Metropolitan Transit Authority of Harris County Karl Simon, Director, Transportation and Climate Division, U.S. Environmental Protection Agency, Nigel H.M. Wilson Washington, DC MIT Paul P. Skoutelas, President and CEO, American Public Transportation Association, Washington, DC EX OFFICIO MEMBERS Polly Trottenberg, Deputy Secretary of Transportation and Acting Administrator, Federal Aviation Shailen Bhatt Administration, U.S. Department of Transportation, Washington, DC FHWA Jim Tymon, Executive Director, American Association of State Highway and Transportation Officials, Victoria Sheehan Washington, DC TRB Veronica Vanterpool, Acting Administrator, Federal Transit Administration, Washington, DC Paul P. Skoutelas APTA Jim Tymon AASHTO Veronica Vanterpool AASHTO TOPS COMMISSION STAFF ADVISOR Arthur L. Guzzetti APTA SECRETARY Victoria Sheehan TRB * Membership as of May 2024. * Membership as of May 2024. 

TRANSIT COOPERATIVE RESEARCH PROGRAM TCRP SYNTHESIS 175 Examination of Transit Agency Coordination with Electric Utilities A Synthesis of Transit Practice Lisa Jerram American Public Transportation Association Washington, DC Subject Areas Public Transportation • Maintenance and Preservation • Operations and Traffic Management Research sponsored by the Federal Transit Administration in cooperation with the American Public Transportation Association 2024 

TRANSIT COOPERATIVE RESEARCH PROGRAM TCRP SYNTHESIS 175 The nation’s growth and the need to meet mobility, environmental, Project J-07, Topic SA-60 and energy objectives place demands on public transit systems. Cur- ISSN 1073-4880 rent systems, some of which are old and in need of upgrading, must ISBN 978-0-309-70995-8 expand service area, increase service frequency, and improve efficiency © 2024 by the National Academy of Sciences. National Academies of to serve these demands. Research is necessary to solve operating prob- Sciences, Engineering, and Medicine and the graphical logo are trade- lems, adapt appropriate new technologies from other industries, and marks of the National Academy of Sciences. All rights reserved. introduce innovations into the transit industry. The Transit Coopera- tive Research Program (TCRP) serves as one of the principal means by which the transit industry can develop innovative near-term solutions to meet demands placed on it. COPYRIGHT INFORMATION The need for TCRP was originally identified in TRB Special Report Authors herein are responsible for the authenticity of their materials and for obtaining 213—Research for Public Transit: New Directions, published in 1987 written permissions from publishers or persons who own the copyright to any previously and based on a study sponsored by the Urban Mass Transportation published or copyrighted material used herein. Administration—now the Federal Transit Administration (FTA). A Cooperative Research Programs (CRP) grants permission to reproduce material in this report by the American Public Transportation Association (APTA), publication for classroom and not-for-profit purposes. Permission is given with the Transportation 2000, also recognized the need for local, problem- understanding that none of the material will be used to imply TRB, AASHTO, APTA, FAA, FHWA, FTA, GHSA, or NHTSA endorsement of a particular product, method, or practice. solving research. TCRP, modeled after the successful National Coop- It is expected that those reproducing the material in this document for educational and erative Highway Research Program (NCHRP), undertakes research not-for-profit uses will give appropriate acknowledgment of the source of any reprinted or and other technical activities in response to the needs of transit ser- reproduced material. For other uses of the material, request permission from CRP. vice providers. The scope of TCRP includes various transit research fields including planning, service configuration, equipment, facilities, Cover photo courtesy Pinellas Suncoast Transit Authority operations, human resources, maintenance, policy, and administrative practices. TCRP was established under FTA sponsorship in July 1992. Pro- NOTICE posed by the U.S. Department of Transportation, TCRP was authorized The report was reviewed by the technical panel and accepted for publication according to as part of the Intermodal Surface Transportation Efficiency Act of 1991 procedures established and overseen by the Transportation Research Board and approved (ISTEA). On May 13, 1992, a memorandum agreement outlining TCRP by the National Academies of Sciences, Engineering, and Medicine. operating procedures was executed by the three cooperating organi- The opinions and conclusions expressed or implied in this report are those of the zations: FTA; the National Academies of Sciences, Engineering, and researchers who performed the research and are not necessarily those of the Transporta- Medicine, acting through the Transportation Research Board (TRB); tion Research Board; the National Academies of Sciences, Engineering, and Medicine; or and APTA. APTA is responsible for forming the independent govern- the program sponsors. ing board, designated as the TCRP Oversight and Project Selection The Transportation Research Board does not develop, issue, or publish standards or spec- (TOPS) Commission. ifications. The Transportation Research Board manages applied research projects which Research problem statements for TCRP are solicited periodically but provide the scientific foundation that may be used by Transportation Research Board sponsors, industry associations, or other organizations as the basis for revised practices, may be submitted to TRB by anyone at any time. It is the responsibility procedures, or specifications. of the TOPS Commission to formulate the research program by identi- The Transportation Research Board; the National Academies of Sciences, Engineering, and fying the highest priority projects. As part of the evaluation, the TOPS Medicine; and the sponsors of the Transit Cooperative Research Program do not endorse Commission defines funding levels and expected products. products or manufacturers. Trade or manufacturers’ names or logos appear herein solely Once selected, each project is assigned to an expert panel appointed because they are considered essential to the object of the report. by TRB. The panels prepare project statements (requests for propos- als), select contractors, and provide technical guidance and counsel throughout the life of the project. The process for developing research problem statements and selecting research agencies has been used by TRB in managing cooperative research programs since 1962. As in other TRB activities, TCRP project panels serve voluntarily without compensation. Because research cannot have the desired effect if products fail to reach the intended audience, special emphasis is placed on disseminat- ing TCRP results to the intended users of the research: transit agen- cies, service providers, and suppliers. TRB provides a series of research reports, syntheses of transit practice, and other supporting material Published reports of the developed by TCRP research. APTA will arrange for workshops, train- TRANSIT COOPERATIVE RESEARCH PROGRAM ing aids, field visits, and other activities to ensure that results are imple- mented by urban and rural transit industry practitioners. are available from TCRP provides a forum where transit agencies can cooperatively National Academies Press address common operational problems. TCRP results support and 500 Fifth Street, NW, Keck 360 Washington, DC 20001 complement other ongoing transit research and training programs. (800) 624-6242 and can be ordered through the Internet by going to https://nap.nationalacademies.org Printed in the United States of America 

The National Academy of Sciences was established in 1863 by an Act of Congress, signed by President Lincoln, as a private, non- governmental institution to advise the nation on issues related to science and technology. Members are elected by their peers for outstanding contributions to research. Dr. Marcia McNutt is president. The National Academy of Engineering was established in 1964 under the charter of the National Academy of Sciences to bring the practices of engineering to advising the nation. Members are elected by their peers for extraordinary contributions to engineering. Dr. John L. Anderson is president. The National Academy of Medicine (formerly the Institute of Medicine) was established in 1970 under the charter of the National Academy of Sciences to advise the nation on medical and health issues. Members are elected by their peers for distinguished contributions to medicine and health. Dr. Victor J. Dzau is president. The three Academies work together as the National Academies of Sciences, Engineering, and Medicine to provide independent, objective analysis and advice to the nation and conduct other activities to solve complex problems and inform public policy decisions. The National Academies also encourage education and research, recognize outstanding contributions to knowledge, and increase public understanding in matters of science, engineering, and medicine. Learn more about the National Academies of Sciences, Engineering, and Medicine at www.nationalacademies.org. The Transportation Research Board is one of seven major program divisions of the National Academies of Sciences, Engineering, and Medicine. The mission of the Transportation Research Board is to mobilize expertise, experience, and knowledge to anticipate and solve complex transportation-related challenges. The Board’s varied activities annually engage about 8,500 engineers, scientists, and other transportation researchers and practitioners from the public and private sectors and academia, all of whom contribute their expertise in the public interest. The program is supported by state transportation departments, federal agencies including the component administrations of the U.S. Department of Transportation, and other organizations and individuals interested in the development of transportation. Learn more about the Transportation Research Board at www.TRB.org. 

COOPERATIVE RESEARCH PROGRAMS CRP STAFF FOR TCRP SYNTHESIS 175 Waseem Dekelbab, Deputy Director, Cooperative Research Programs Gwen Chisholm Smith, Manager, Transit Cooperative Research Program Jamaal Schoby, Senior Program Officer Oulimata Khoule, Senior Program Assistant Natalie Barnes, Director of Publications Heather DiAngelis, Associate Director of Publications TCRP PROJECT J-07 PANEL Rachel Dungca, Metro Transit, Minneapolis-St. Paul, Minneapolis, MN (Chair) Jameson Auten, Lane Transit District, Eugene, OR Mallory Avis, Battle Creek Transit, Battle Creek, MI Raymond Chan, Arcadis IBI Group, Kettering, OH Roderick B. Diaz, Southern California Regional Rail Authority, Los Angeles, CA Mark Donaghy, Petersburg, KY Christian T. Kent, Christian T. Kent, Transit Management Consulting, LLC, Virginia Beach, VA Beverly Neff, San Diego Metropolitan Transit System, San Diego, CA Ed F. Watt, WattADR, Rockaway Park, NY David C. Wilcock, VHB, Boston, MA Robert Earl Williams, Ann Arbor Transportation Authority, Ann Arbor, MI Tara Clark, FTA Liaison Arthur L. Guzzetti, APTA Liaison Billy Terry, National Transit Institute Liaison TOPIC SA-60 PANEL Shofi Azum, Salem Area Mass Transit District, Salem, OR Eric Cahill, Sacramento Municipal Utility District, Davis, CA Abhishek Dayal, Pinellas Suncoast Transit Authority, St Petersburg, FL Carrie Desmond, Metro Transit (MN), Minneapolis, MN Mark Donaghy, Petersburg, KY Darryl Spencer, Dallas Area Rapid Transit (DART), Dallas, TX Kyle Whatley, San Diego Metropolitan Transit System, San Diego, CA Jason White, Roaring Fork Transportation Authority, Carbondale, CO Karen Winger, MASCO, Boston, MA 

ABOUT THE TCRP SYNTHESIS PROGRAM Transit administrators, engineers, and researchers often face problems for which information already exists, either in documented form or as undocumented experience and practice. This infor- mation may be fragmented, scattered, and unevaluated. As a consequence, full knowledge of what has been learned about a problem may not be brought to bear on its solution. Costly research findings may go unused, valuable experience may be overlooked, and due consideration may not be given to recommended practices for solving or alleviating the problem. There is information on nearly every subject of concern to the transit industry. Much of it derives from research or from the work of practitioners faced with problems in their day-to-day work. To provide a systematic means for assembling and evaluating such useful information and to make it available to the entire transit community, the Transit Cooperative Research Program Oversight and Project Selection (TOPS) Commission authorized the Transportation Research Board to undertake a continuing study. This study, TCRP Project J-07, “Synthesis of Information Related to Transit Practices,” searches out and synthesizes useful knowledge from all available sources and prepares concise, documented reports on specific topics. Reports from this endeavor constitute a TCRP report series, Synthesis of Transit Practice. This synthesis series reports on current knowledge and practice, in a compact format, without the detailed directions usually found in handbooks or design manuals. Each report in the series provides a compendium of the best knowledge available on those measures found to be the most successful in resolving specific problems. FOREWORD By Jamaal Schoby Staff Officer Transportation Research Board Transit agencies across the United States are transitioning conventional bus fleets to battery electric buses (BEBs). The transition to BEBs requires large investments in charging infrastructure as well as new demands on the power grid, which provide opportunities for partnership with electric utilities to upgrade grid supply and energy loads, and also to reduce costs during peak load. This novel technology has the potential to reduce harmful pollutants in environments where transit buses operate and help meet ambi- tious climate goals. Technology improvements, such as longer-range batteries and lower battery costs, are also driving greater BEB adoption, although the cost differential between BEBs and conventional transit buses remains high. Both transit agencies and utilities have a substantial learning curve in this process. This synthesis provides practitioners and operational staff at transit bus agencies and electric utilities with the state of current practices by agencies and utilities that are collaborating on BEB planning and deployments. First, this synthesis presents the results of a literature review examining the U.S. electric utility industry, the regulatory framework, and guidance for collaborating with electric utilities. Next, a survey of 34 transit agencies was used to determine the level of support from, and participation in, a range of possible electric utility programs that provide capital funding/financing, operational support, or planning support for transit bus electrification. Case examples for five of the agencies provide in-depth examples of agency-utility collaborations that can be used as an example for both transit agencies in the process of establishing a relationship with their utility and for electric utilities looking for policies and programs that are most helpful to transit agency electrification efforts. This synthesis concludes with documenting the findings, lessons learned, and identification of future research needs. Lisa Jerram with the American Public Transportation Association (APTA) collected the data, syn- thesized the information, and wrote the report. The members of the topic panel are acknowledged on page iv. This synthesis is an immediately useful document that records the practices that were acceptable within the limitations of the knowledge available at the time of its preparation. As progress in research and practice continues, new knowledge will be added to that now at hand. 



CONTENTS 1 Summary 4 Chapter 1 Introduction 4 Project Background and Objectives 4 Approach and Methodology 5 How to Use This Report 7 Chapter 2 Literature Review 7 State of Battery Electric Bus Deployment 10 The U.S. Electric Utility Industry 16 Guidance on Working with Utilities 20 Examples of Utility Programs 23 Chapter 3 Transit Agency-Utility Collaboration Survey 23 Types of Electric Utility Programs That Support BEB Deployment 23 Survey Responses 29 Chapter 4 Case Examples 29 Metro Transit, Minneapolis-St. Paul 34 Roaring Fork Transportation Authority (RFTA) 37 San Diego Metropolitan Transit System (MTS) 44 Pinellas Suncoast Transit Authority (PSTA) 48 Charlotte Area Transit System (CATS) 51 King County Metro 57 Missoula Urban Transportation District 59 Chapter 5 Findings and Further Research Needs 59 Findings 61 Future Research Needs 62 References and Bibliography 65 Appendix A Survey Participants 67 Appendix B Transit Agency Survey 74 Appendix C Interview Guide 76 Appendix D Interview Subjects 77 Acronyms and Abbreviations