BREJTP Toolkit Smallsize

LEXINGTON MARKET HIGHWAY TO NOWHERE CONCLUSION EJ 1
COMM
UNITY
a bottom-up approach to
environmental justice and
transportation
2 EJ PROJECT KIRK AVE CHERY HILL
WHAT IS
ENVIRONMENTAL
JUSTICE?
We Believe
Environmental Justice seeks

to redress inequitable dis-
tributions of environmental
burdens (pollution, indus-
trial facilities, crime, etc.)
and access to environmen-
tal goods (nutritious food,
clean air & water, parks,
recreation, health care, edu-
cation, transportation, safe
jobs, etc.). Self-determina-
tion and participation in de-
cision-making are key com-
ponents of environmental
justice.
THE PROJECT
OBJECTIVE:
Since 2003, the Baltimore Region Environmental Justice in Transportation
(BREJT) Project has been listening to low-income, minority communities describe
the impact that transportation has on their environment and in their lives.
Our primary objective has been to develop a toolkit, which encourages government
and communities to better work together to achieve environmentally sound solu-
tions when addressing community identified transportation issues.
The purpose of this toolkit is to provide a public participation framework, perfor-
mance measures, and analytical tools that can be used by communities, planners and
professionals to enhance environmental justice evaluation and assessment and lead
to decisions that are more equitable.
Our research efforts focused on the concerns of local residents, transit dependent
and community leaders on four case studies throughout Baltimore:
Kirk Avenue Bus Yard (Midway Community)
Transit access (Cherry Hill)
Highway to Nowhere (West Baltimore)
Public involvement and Pedestrian Safety (Lexington Market)
In talking with members of these communities we found concerns regarding blight
and decay, as well as a common desire for a better living environment, a more
responsive government, and more meaningful public participation. This meaning-
ful involvement occurs when low-income communities are better positioned to
argue, defend and anticipate the social, economic, or environmental consequences of
project improvements.
From the Baltimore experience there is a clear message that communities which are
motivated, well organized and educated on the issues bring a sense of ownership to
the table that can positively influence the transportation decision making process.
www.brejtp.org
LEXINGTON MARKET HIGHWAY TO NOWHERE CONCLUSION PROJECT 7
LEXINGTON MARKET HIGHWAY TO NOWHERE CONCLUSION PROJECT 9
Call To Action
Let’s start thinking about

how public participation
and transportation are
affecting our environment.
CASE S TUDY No.1
KIRK
AVENUE
BUS YARD
X
LEXINGTON MARKET HIGHWAY TO NOWHERE CONCLUSION KIRK AVE 11
INTRODUCTION
The Midway Community is one in which residential and industrial uses collide. The Kirk
Avenue bus yard has been a point of contention between the surrounding community and the
Maryland Transit Administration (MTA) for some time. The primary complaints have to do
with the impact of noise and emissions from bus operations on the community and its resi-
dents. The bus yard is located between industrial land to the north and east and residential
neighborhoods to the west and south, that seem to have somewhat receded over time. What
is not clear is the extent to which the operations at the Kirk Avenue bus yard have directly
caused the decline of the neighborhood.
COMMUNITY CONCERNS
- Residents complain that the noise levels - Quality of life has declined for many
at the bus yard are too high and are hav- residents due to an inability to
ing physiological health impacts. fully use their homes because of
- Concerns about the impacts of engine exhaust and noise. Examples cited were:
idling on residents’ respiratory health. A Not being able to open windows
number of residents have asthma and in rooms facing bus yard; No one
some have died of cancer. with any respiratory problems
can sleep in the back rooms; and
- Bus yard is too close t0 homes–The Kirk No backyard cookouts.
Avenue bus yard is 1 of 3 MTA bus yards
located in/near residential areas. - Community representatives have ap-
pealed to the MTA on numerous
- Residents concerned about impact of occasions to address these conditions
bus yard on property values, as the bus but feel their concerns are not being
yard is perceived as having a negative resolved or at time, even considered.
impact upon the community.
ANALYSIS & FINDINGS

nature of bus oper ations:
Bus operations - Some of the bus routes leaving from
- In terms of daily pullouts, Kirk Ave. Bus Kirk Ave. directly serve the Midway
Yard is the 2nd largest facility. Community. Of the 12 bus routes
that leave the Kirk Ave bus yard, 4
- All 4 of MTA’s bus yards have had a are within a 1/2 mile radius of Kirk Ave
significant decrease in bus pullouts and 2 are within 1 mile.
between 1997 and 2007; however Kirk
Ave. has had the largest decrease (22.5%).
community impacts:
oise + Air Pollution
N lution didn’t exceed the federal standard,
- Noise pollution noted at bus yard: the 2 week average indicates that the
Announcements over loud speakers annual standard may be exceeded.
Engines running throughout day and
- The effects of air pollution put residents
night
at an increased risk for adverse health
Repairs and servicing
effects. Related illnesses and doc-
- Recorded noise levels exceeded the tor/hospital visits were documented and
Baltimore City ordinance levels during mapped.
both day and night, nearly every day
Property Values
tested. Noise levels were higher during
- Property values are lower in the 1/4 mile
night hours, especially on weekends.
residential area surrounding the bus
This could affect residents’ health (loss
yard, particularly given that houses are
of sleep, high levels of stress, etc).
larger units than those in the surround-
- Although the daily average of air pol- ing area.
assesment & recommendations:

- MTA is currently responding to the substantially attributed to the bus
community’s concerns with some yard.
mitigation measures (hybrid buses, new
operational procedures, etc). - Community should ask the MTA for a
clear statement of the likely impacts of the
- Community should have ongoing,
new, planned facility and pursue mitigation
structured, negotiations with MTA
for impacts from construction and imple-
regarding near-term and long-term
mentation of the new facility.
strategies that will begin to provide some
relief from the impacts which are
tools used in this case study

- Diary of concerns analysis
- Community meetings - Map of reported illnesses and health
- Map of bus routes & pullouts concerns
- Socio-demographic profiling - Indoor and outdoor air pollution mea-

surements
- Homeownership and property value
- Noise & community perceptions
Summary
The Kirk Avenue bus yard is a good example of why bus yards
do not make ideal neighbors when located adjacent to the back-
yards of residents. The likelihood of considerable noise and
exhaust from the buses can cause residents to have great concern
for their quality of life and health.
Community Voice
REMOVE BUS DOWNSIZE

YARD THE YARD
ALTOGETHER BY 50%
Provide funds to reno-

vate homes adjacent
to the yard, in order to
BUILD SOUND live with the impact of
WALLS fumes/noise
Pay damages to residents

for the factors that have Provide landscap-
ing around bus
caused poor health and
yard. Add trees to
living conditions and lost the area to beau-
use of homes tify the neighbor-
hood.
CASE S TUDY No.2
CHERRY
HILL
X
LEXINGTON MARKET HIGHWAY TO NOWHERE CONCLUSION CHERY HILL 17
INTRODUCTION
The Cherry Hill community is located in the southern section of Baltimore City, south of
the Inner Harbor/Central Business District of Baltimore City. The Cherry Hill community
was established in the late 1940’s when the Housing Authority of Baltimore City chose it
as a site of a federal project for African American war workers migrating from the South.
In those days of segregated housing, no neighborhood in the city was available for an influx
of African Americans. Today , Cherry Hill is a mostly residential area with apartment
complexes, row houses, and public housing projects. Some of the public housing has been
demolished leaving large tracts of land in the middle of the community that can be redevel-
oped in the future.
COMMUNITY CONCERNS
- Residents feel there are too few busses transit

- The buses do not run on schedule - People miss appointments or are left
- Bus stops, shelters, sidewalks are poorly stranded
maintained. - Employers see Cherry Hill residents as
- Paratransit vehicles are poorly equipped unreliable
- Drivers are impolite - Complaints go unanswered
- Poor community highly dependent on
ANALYSIS & FINDINGS
impact of changes on regional accessibility
- Decreased transit access overall. - Light rail service has improved travel time
to jobs in the BWI corridor.
- Major areas of E. Baltimore inaccessible
within 1 hour of travel time. - Overall access to jobs for transit dependent
households in Cherry Hill has declined.
- Access to substantial areas of N.E. Balti-
more are no longer reachable without at
least one hour of travel time.
community profile and changes:

1990-2000 saw a marked change in the size - Single person households increased by
of Cherry Hill Regional Planning District 15.8%.
(RPD). Here are some of the findings: - By age, the largest decreases were seen
among 18-44 year olds (-31.7%) and in
- Overall population declined 21.1%, with
children under 5 (-29.6%).
the largest population decrease among
whites (-46.8%) and largest increases - Total reduction in housing was 9.3%,
among Non-whites (+77.8%) and His- but percent change in vacant homes
panics (+99%). increased by 113%.
- 12.9% decline in the number of house- - Number of employed residents fell by
holds. 28.6% and the unemployment rate was
15.5% of total labor force – well above the
- Largest decreases in households were
national average.
seen among married couples with chil-
dren (-51.4%).

- Initial review shows Cherry Hill - Implement a process to report back to
community has experienced deferential community about status of investiga-
treatment with regard to transit service, tions into complaints, including any
however additional investigations should changes implemented as a result.
be undertaken to quantify and legitimize
- Create a community advisory board.
residents’ claims. Recommended studies
and actions are listed below. - Establish that the reductions in bus
services after the light rail services began
- Develop an independent monitoring and
in 1992 were not part of a much
assessment program to document
larger, system wide reduction in services
community concerns regarding
due to financial restrictions
both transit and paratransit services.

- Listening session - Population, housing, and employment
- Maps showing changes to transit travel statistics
times - Map of available transit in area
- Regional travel model analysis
Summary
Light Rail is too far away from community leading to

difficulty of access for business workers and commu-
nity use in general. Difficulty for seniors and disabled
populations to obtain access to light rail station.
Community Voice
MTA DOES NOT

COMPLAINTS DO USE “CHECKERS”
NOT PRODUCE ANYMORE TO SEE
RESULTS IF BUSSES ARE
RUNNING ON TIME
Cherry Hill has

awful streets Bus service is terrible-
& sidewalks there are too few buses
and they do not run on
schedule.
The #27 & #51 are
the worst.
Bus services used to

be better in Cherry
Hill. A reason for poor
service is resources are
being spent in more af- Bus/Light Rail
fluent communities stops are dirty
& broken
Seniors have difficulty riding

certain buses due to over-
crowding
22 LEXINGTON MARKET EJ PROJECT KIRK AVE CHERY HILL
CASE S TUDY No.3
LEXINGTON
MARKET
X
LEXINGTON MARKET HIGHWAY TO NOWHERE CONCLUSION 23
INTRODUCTION
Lexington Market is a major commercial destination in downtown Baltimore, providing

fresh produce, meats, seafood, and a variety of vendors selling items in a large, historic
building. The market is not only a major tourist attraction, but also a mainstay for a large
portion of Baltimore’s minority community, who prize its selections, freshness and tradition.
Beginning in 2001, the City of Baltimore Police Department, the Market Authority, and the
MTA introduced a set of controversial changes when they moved the stops for several of the
bus routes.
COMMUNITY CONCERNS
- Public felt it had been marginalized and - Public are concerned about exposure to
left out of the decision-making process vehicle exhaust as they walk to connect
- Commercial interests were given prefer- with buses
ence over community well-being - Pedestrians have to navigate busy street
- Shoppers complained they had to walk traffic to visit market or transfer between
longer distances to connect with buses transit services.
ANALYSIS & FINDINGS
changes in regional transit access:
Changes in regional transit access

- In general, due to the addition of Metro
- Historically, a large number of the city’s
and light rail, a much higher percentage
minority and low-income residents have
of the region is within a 1-hour travel
traveled to the market by public transpor-
window of Lexington Market in 2000
tation.
than in 1990.
- Improvements in transit access to the
- The net effect of the added rail services
market are seen in the communities to
seems to have improved transit access to
the north and west of the market. A
the market.
significant improvement was also noted
for Westport residents (-11 minutes).
tr ansportation statistics:
- The crosswalk at Lexington Street is not crossing without a signal difficult and
signalized. This crosswalk supports ma- dangerous.
jor pedestrian traffic made up from visi-
- Pedestrian counts taken at the same time
tors and transit users.
show over 500 pedestrians crossing
- A 1996 City of Baltimore traffic report Eutaw Street. Given the narrow
documents that 600-800 vehicles travel sidewalks, these high volumes of
every hour along Eutaw Street in front pedestrians and vehicles make for
of Lexington Market. This amounts to congested conditions.
one vehicle every 4-6 seconds, making
- Some hardship may have been visited making process
upon riders to Lexington Market as a Implement improved process for
result of the movement of bus stops. notifying and involving transit
However, further information is needed riders of proposed changes to bus
to assess the actual impacts. stops
- What is evident is the community was - Due to high traffic volumes, pedestrian
not included in the decision-making safety remains a concern for both transit
process of moving the bus stops. These riders and visitors. Recommend the
“issues of process” are more a concern following to address these concerns:
from an environmental justice perspec -
Collect updated traffic counts to
tive than the movement of the stops
determine current safety issues
themselves, since they show a lack of
between pedestrian and vehicle traffic.
consideration for an inclusive process.
Recommend the following: Identify and evaluate alternatives to
improve pedestrian safety and access.
Research ways to improve decision-

- Community meetings - Study changes to travel times
- Measure vehicle and pedestrian traffic - Pedestrian counts
volumes
Summary
The public rightly felt that it had been marginalized by the decision-
making process, and that commercial interests (such as a parking lot
adjacent to the Market) were given preference over their well being.
Upon review of the situation, initial concerns about serious conges-
tion and health effects due to prolonged exposure to vehicle activity –
as framed in initial community discussions – appeared less severe than
initially portrayed.
Community Voice
WE ARE FORCED
We are exposed to TO WALK LON-
vehicle exhaust GER DISTANCES
TO CONNECT
WITH BUSES
WE WERE
NOT INVITED
TO TAKE PART
We are ex-
posed to
weather
Commercial interests
were more important We have to walk
along busy streets
than community needs while carrying
packages
28 HIGHWAY TO NOWHERE EJ PROJECT KIRK AVE CHERY HILL
CASE S TUDY No.4
HIGHWAY
TO
NOWHERE
X
INTRODUCTION
The “Highway to Nowhere” is a massive section of roadway that begins on the western edge
of downtown Baltimore and heads due west out of the city as part of US Route 40 through
neighborhoods of Poppleton, Harlem Park, Lafayette Square and Rosemont. Once the
starting point of an ambitous plan to connect I-95, as it passes through Baltimore, with I-70,
which terminates at the Baltimore Beltway (I-695) in the west, the highway would have been
called as I-170. However, the plan ran out of momentum and support before it could proceed
beyond the railway line, and thus it remains to this day–almost 30 years after it was opened to
traffic – a grade-separated superhighway that is only 1.4 miles long.
COMMUNITY CONCERNS
- The Highway to Nowhere is a ditch that - The city and state have allowed the area
cut the community into two halves. to decay over the last 30 years and noth-
- The creation of the Highway to No- ing significant has been done to help
where led to a decline in property values correct the mistake of the highway.
and in increase in abandoned buildings. - Residents fear being displaced again
- There has been an increase in crime, when new improvements are introduced.
especially drug-related.
ANALYSIS & FINDINGS

demogr aphic char acteristics and changes:
- In the 3 main communities affected by than $30,000 per year.
the Highway to Nowhere (HTN),
- Residents living closest to the eastern
significant shifts in population were
end of the HTN have a median-income
noted: 67% decline in the central area
of less than $15,000 per year.
and 80% decline in the eastern area from
1950 to 2000. 39% decline in the west- - Residents of the hard-hit eastern section
ern area from 1960 to 2000. also show signs of economic and social
distress:
- From 1940 to 2000, Baltimore’s
48% of residents over 25 have less than
White population fell 70%, while its
a high school education
Black population more than doubled
43.3% are living below the poverty
(rising 253%).
level
- The US 40 – HTN corridor is mostly 28% of housing is vacant
comprised of minority families with low- 57% of homes are occupied by renters.
to-moderate incomes, many earning less Only 15% are owner-occupied.
congestion, air quality, and transit:

- Some portions of the HTN show con- - Along the 1.4 mile HTN corridor, daily
gestion, particularly where the “express production of emissions equal 39.2 tons
way” ends. a year of Hydrocarbons and 26.9 tons a
year of NOx.
- Fulton and Monroe Streets also show
congestion, as they are major arteries - Bus transit service is good in the cor-
bringing substantial traffic through the ridor, with MTA bus routes No. 10
west Baltimore neighborhoods. and 40 providing frequent east - west
from downtown to Social Security, and
- A substantial amount of traffic on US 40
various cross-routes providing north-
comes from outside Baltimore City.
south connection.
This traffic stream is growing each
year – daily volumes have increased by - There is access to a commuter train, but
24.5% just since 2000. no local rail transit in the corridor.
However, the proposed Red Line would
- The principal population subgroups that
occupy or parallel the US 40 right of
use the US 40/HTN corridor appear
way along much of its length.
to be of a very different socioeconomic
mix than those live along the corridor.
- It is clear that the communities in the pollutants each day, while the commut-
W. Baltimore neighborhood adjacent to ers from Baltimore, Howard, Frederick
the Highway to Nowhere have had a - A significant community planning effort
difficult time. The dislocation of several is needed to address the disproportion-
thousand residents left the remaining ate burden that is borne by this predomi-
African America homeowners and com- nately low-income, minority community.
munities struggling to sustain a proud
- Baltimore City and the MDOT have
past.
initiated planning processes in West
- The HTN remains 30 years later as a Baltimore related to the Red Line
daily reminder for residents of “planning transit project and West Baltimore
gone wrong.” MARC station improvements.
It will be key for residents to work
- The local residents bear the burden of
closely together with planners to ensure
36,000 vehicles a day passing through
community needs are met as planning
their communities, generating an
moves forward on these two projects.
estimated 1/4 ton of ozone-producing

- Map congestion levels - Review of U.S. Census data
- Regional travel forecasting model - Select link analysis
Summary
Thirty years after the Highway to Nowhere was constructed there is still
community memory of the distruction and a palpable bitterness about what
was done.
Community Voice
IT DOES NOT
We were not
ADD ANYTHING included in the
TO OUR decisions
COMMUNITY
We do not want to bear

the burden of traffic,
noise and pollution
We do not want to from traffic that come
be displaced again through our neighbor-
hoods
We do not want to be a
victim to another failed Make a concerted
or poorly-planned major effort to work
infrastructure project with community
and redevelop
and improve area
34 CONCLUSION EJ PROJECT KIRK AVE CHERY HILL
Call To Action
We Are Our
Environment
Making The Case
Define it!
Document it!
Prioritize it!
Analyze it! Define
the
Evaluate it! Problems
Analyze
Data &
Develop
Solutions Triage
and Set
Priorities
Define it– Agree on the issue.

Build community consensus around that topic.
Document it– Keep a diary or take photos or write down occurrences.
Keep track of changes, good or bad, as they happen.
Prioritize it– Rank community concerns if there is more than one issue.
Determine what you would want as a solution.
Communicate issue and possible solution to an agency.
Analyze it– Communities have access to information, particularly through
local libraries.
Collect information to support the issue or to promote your
desired solution.
Evaluate it– Communities are encouraged to participate in
decision-making with various agencies.
Be aware that agencies can conduct analyses to show
Making The Case
why they can or can not take certain actions.

Get help– Evaluation can be very simple and straightforward or very
involved, it depends on the issue. Decisions generally are based
after a range of considerations.

Ask agencies if they can explain the process.
For example:
If this is the issue… One measure for analysis…

Access to jobs Work opportunities within
15, 30 and 45 minutes by
car and by transit
Condition of buses Percentage of out-of-service
buses or age of buses
Limited accessibility Opportunities to get to
health care, education or
shopping
Concerns over air/noise pollution Collect air samples inside and
outside, measure noise levels
Poor infrastructure Are pedestrian signals, side–
walks, benches, streets in
good repair
Toolkit
Create Community Groups–there is power in

numbers and it will be easier for you to tackle
complicated projects.
Decide What Issues Are Important to Your
Community–there might be many issues that
your community is facing and selecting one issue
can give you focus.
Set Realistic And Clear Community Goals–for
example: by the first year we want to arrange a
community meeting.
Keep Your Community Informed of Your Prog-
ress–it will be important for your community to
know and understand what you have been doing
and the problems you are facing.
Keep Written Records–it will be important for
you and your community to know what happened
and when; who you talked to and when; what peo-
ple have said, and where you travel to and what you
saw.
Keep Photographic Records–they say a picture is
more powerful than words and it will be important
for you and your community to remember what
Toolkit
you saw and how it might have changed.

Talk To Everyone About Your Community
Issues–talk to the newspapers, radio stations, tele-
vison stations and other community groups about
what are doing to improve your community.
Invite Speakers to Your Community Meet-
ings–these speakers can be leaders from other
community groups to talk about their issues, or
politicians to talk about what they are doing, or
researchers from universities to talk about com-
munity research.
Collect travel information–detailed community
and trip diaries can serve to document the need
for transit service at different times or on different
days. It can also support the need for rideshare or
mobility services.
CONCLUSION
It is important to understand the process that the project

used to arrive at the results for each case study were fore-
most driven by: issues identified at the community level,
the desire to provide a systematic process for identifying
the feasibility of environmental justice issues and then the
evaluation of those issues.
Our hope is that the information and tools in this guide will
provide members of the public, planners, and local lead-
ers with a solid framework and resources to collaboratively
identify, evaluate, and address concerns in their own com-
munities.
We would like to offer our appreciation and thanks to all
the community leaders and residents who assisted us in this
project.
CONTACT
For more information about the Baltimore Regional Environmental Justice in Transportation
Project please visit www.brejtp.org or contact one of the organizations listed below.
Baltimore Metropolitan Council
Environmental Justice Partnership, Inc.
Greater Baltimore Urban League
Johns Hopkins Center in Urban Environmental Health
Morgan State University
Institute for Urban Research
School of Engineering
National Transportation Center
You can also contact Glenn Robinson, Principal Investigator, Morgan State University at:
443-885-1039 or glenn.robinson@morgan.edu
DISCLAIMER
This document is disseminated under the sponsorship of the BREJT Project Team in the interest of
information exchange. The contents do not necessarily reflect the views or policies of the Morgan State
University, Baltimore Metropolitan Council, Maryland Department of Transportation or the Baltimore
City Department of Transportation and no official endorsement by these agencies should be inferred.
This guide contains recommended practice but does not constitute a standard, specification, or regula-
tion.

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LEXINGTON MARKET HIGHWAY TO NOWHERE CONCLUSION EJ 1

Environmental Justice seeks

Let’s start thinking about

CASE S TUDY No.1

ANALYSIS & FINDINGS

assesment & recommendations:

tools used in this case study

- Socio-demographic profiling - Indoor and outdoor air pollution mea-

REMOVE BUS DOWNSIZE

Provide funds to reno-

Pay damages to residents

CASE S TUDY No.2

- Residents feel there are too few busses transit

- Drivers are impolite - Complaints go unanswered

- Poor community highly dependent on

ANALYSIS & FINDINGS

impact of changes on regional accessibility

community profile and changes:

assesment & recommendations:

tools used in this case study

Light Rail is too far away from community leading to

MTA DOES NOT

Cherry Hill has

Bus services used to

Seniors have difficulty riding

CASE S TUDY No.3

Lexington Market is a major commercial destination in downtown Baltimore, providing

ANALYSIS & FINDINGS

changes in regional transit access:

Changes in regional transit access

tools used in this case study

CASE S TUDY No.4

ANALYSIS & FINDINGS

congestion, air quality, and transit:

tools used in this case study

We do not want to bear

Making The Case

Evaluate it! Problems

Define it– Agree on the issue.

Making The Case

why they can or can not take certain actions.

If this is the issue… One measure for analysis…

Create Community Groups–there is power in

you saw and how it might have changed.

It is important to understand the process that the project

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