It is a truth universally acknowledged that cities spend far more per rider on airport connectors than on other kinds of public transit. On this blog, see many posts from previous years on the subject. My assumption, and that of such other transit advocates as Charles Komanoff, was always that it came from an elite versus people distinction: members of the global elite fly far more than anyone else, and when they visit other cities, they’re unlikely to take public transit, preferring taxis for most intermediate-length trips and walking for trips around the small downtown area around their hotels.
In this post, I would like to propose an alternative theory. Commuters who use public transit typically use their regular route on the order of 500 times a year. If they also take public transit for non-work trips around the city, the number goes even higher, perhaps 700. In contrast, people who fly only fly a handful of times per year. Frequent business travelers may fly a few tens of times per year, still an order of magnitude less than the number of trips a typical commuter takes on transit.
What this means is that 2 billion annual trips on the New York-area rail network may not involve that many more unique users than 100 million annual trips between the region’s three airports. Someone who flies a few times per year and is probably middle class but not rich might still think that transportation to the airport is too inconvenient, and demand better. In the US, nearly half the population flies in any given year, about 20% fly at least three roundtrips, and 10% fly at least five. Usually, discussions of elite versus regular people do not define the elite as the top half; even the top 10% is rare, in these times of rhetoric about the top 1% and 0.1%. When Larry Summers called for infrastructure investment into airport transit, he said it would improve social equity because what he considered the elite had private jets.
But what’s actually happening is not necessarily about the top 0.1% or 1% or even 5% directing government spending their way. It may be so; certainly politicians travel far more than the average person, and so do very rich donors. But broad segments of the middle class fly regularly. The average income of regular fliers is presumably considerably higher than that of people who do not fly, but not to the same extent as the picture drawn by political populists.
None of this makes airport transit a great idea. Of course some projects are good, but the basic picture is still one in which per rider spending on airport connectors is persistently higher than on other projects, by a large factor. In New York, the JFK AirTrain cost about $2 billion in today’s money and carries 6.4 million riders a year, which would correspond to 21,000 weekday riders if it had the same annual-to-weekday passenger ratio as regular transit, 300 (it has a much higher ratio, since air travel does not dip on weekends the way commuter travel does). This is around $100,000 per rider, which contrasts with $20,000 for Second Avenue Subway Phase 1 if ridership projections hold. Earlier this year, the de Blasio administration proposed a developed-oriented waterfront light rail, projected to cost $1.7 billion and get 16 million riders a year, which corresponds to about $32,000 per daily rider; a subsequent estimate pegs it at $2.5 billion, or $47,000 per rider, still half as high as how much the AirTrain cost.
However, what I propose is that the high cost of airport connectors is not because the elite spends money on itself. Rather, it’s because many ordinary middle-class people fly a few times a year and wish for better airport transit, without thinking very hard about the costs and benefits. An airport connector appeals to a very wide section of the population, and may be very cheap if we divide the cost not by the number of daily users but by the number of unique annual users. Hence, it’s easier for politicians to support it, in a way they wouldn’t support an excessively costly subway line connecting a few residential neighborhoods to the city.
It’s a political failure, but not one that can be resolved by more democratic means. The conventional analysis that the root cause is excessive attention to elite concerns implies that if spending were decided in more democratic ways, it would be directed toward other causes. But if the hypothesis I’m putting forth is right, then democracy would not really resolve this, since the number of people who would benefit from an airport connector, if only shallowly, is large. A rigorous regime of cost-benefit analyses, including publicized estimates of cost per rider and the opportunity cost, would be required.
Last summer, I brought up a metric of railroad labor efficiency: annual revenue hours per train driver. Higher numbers mean that train drivers spend a larger proportion of their work schedule driving a revenue train rather than deadheading, driving a non-revenue train, or waiting for their next assignment. As an example, I am told on social media that the LIRR schedules generous crew turnaround times, because the trains aren’t reliably punctual, and by union rules, train drivers get overtime if because their train is late they miss the next shift. Of note, all countries in this post have roughly the same average working hours (and the US has by a small margin the highest), except for France, which means that significant differences in revenue hours per driver are about efficiency rather than overall working hours.
I want to clarify that even when union work rules reduce productivity, low productivity does not equal laziness. Low-frequency lines require longer turnaround times, unless they’re extremely punctual. Peakier lines require more use of split shifts, which require giving workers more time to commute in and out.
The database is smaller than in my posts about construction costs, because it is much harder to find information about how many train operators a subway system or commuter railroad employs than to find information about construction costs. It is often also nontrivial to find information about revenue hours, but those can be estimated from schedules given enough grunt work.
In Helsinki, there is a single subway trunk splitting into two branches, each running one train every 10 minutes all day, every day: see schedules here and here. This works out to 65,000 train-hours a year. There are 75 train drivers according to a 2010 factsheet. 65,000/75 = 867 hours per driver. This is the highest number on this list, and of note, this is on a system without any supplemental peak service, allowing relatively painless scheduling.
In Toronto, there were 80,846,000 revenue car-km on the subway in 2014
(an additional line, the Scarborough Rapid Transit, is driverless). Nearly all subway trains in Toronto have six cars; the Sheppard Line runs four-car trains, but is about 10% of the total route-length and runs lower frequency than the other lines. So this is around 13.5 million revenue train-km. According to both Toronto’s schedule of first and last trains per station and this chart of travel times, average train speed is around 32 km/h between the two main lines, and a bit higher on Sheppard, giving about 420,000 annual service hours. In 2009, there were 393,000 hours. Toronto runs two-person train operation, with an operator (driver) and a guard (conductor); this article from 2014 claims 612 operators and guards, this article from 2009 claims 500 operators alone. 420,000/500 = 840, and, using statistics from 2009, we get 393,000/500 = 786; if the article from 2014 misrepresents things and there are 612 drivers in total, then 420,000/612 = 686. If I had to pick a headline figure, I’d use 786 hours per driver, using the 2009 numbers. Update: the Scarborough RT is not driverless, even though the system could be run driverless; from the same data sources as for the subway, it had 23,000 operating hours in 2014, which adds a few percent to the operating hours per driver statistic.
In London, unlike in North America, the statistics are reported in train-km and not car-km. There are 76.2 million train-km a year, and average train speed is 33 km/h, according to a TfL factsheet; see also PDF-p. 7 of the 2013-4 annual report. In 2012, the last year for which there is actual rather than predicted data, there were 3,193 train drivers, and according to the annual report there were 76 million train-km. 76,000,000/33 = 2,300,000 revenue-hours; 2,300,000/3,193 = 721 hours per driver.
In Tokyo, there used to be publicly available information about the number of employees in each category, at least on Toei, the smaller and less efficient of the city’s two subway systems. As of about 2011, Toei had 700 hours per driver: from Hyperdia‘s schedules, I computed about 390,000 revenue train-hours per year, and as I recall there were 560 drivers, excluding conductors (half of Toei’s lines have conductors, half don’t).
In New York, we can get revenue car-hour statistics from the National Transit Database, which is current as of 2013; the subway is on PDF-p. 13, Metro-North is on PDF-p. 15, and the LIRR is on PDF-p. 18. We can also get payroll numbers from SeeThroughNY. The subway gets 19,000,000 revenue hours per year; most trains have ten cars, but a substantial minority have eight, and a smaller minority have eleven, so figure 2,000,000 train-hours. There were 3,221 train operators on revenue vehicles in 2013, and another 373 at yards. This is 556 hours per driver if the comparable international figure is all drivers, or 621 if it is just revenue vehicle drivers. The LIRR gets 2,100,000 annual revenue car-hours, and usually runs trains of 8 to 12 cars; figure around 210,000. There were 467 engineers on the LIRR in 2013; this is 450 hours per driver. Metro-North gets 1,950,000 annual revenue car-hours, and usually runs 8-car trains; figure about 240,000. It had 413 locomotive engineers in 2013; this is 591 hours per driver.
In Paris, the RER A has 523 train drivers (“conducteurs”). The linked article attacks the short working hours, on average just 2:50 per workday. The timetable is complex, but after adding the travel time for each train, I arrived at a figure of 230,000 train-hours a year. 230,000/523 = 440 hours per driver. There’s a fudge factor, in that the article is from 2009 whereas the timetable is current, but the RER A is at capacity, so it’s unlikely there have been large changes. Note also that in France, workers get six weeks of paid vacation a year, and a full-time workweek is 35 hours rather than 40; adjusting for national working hours makes this equivalent to 534 hours in the US, about the same as the New York subway.
In Seattle, there is an ongoing controversy over a plan to redesign the bus network along the principles proposed by Jarrett Walker: fewer one-seat rides to the CBD, more frequent lines designed around transfers to Link, the city’s light rail system. For some background about the plans, see Capitol Hill Seattle, Seattle Transit Blog, and the transit agency on a restructure specific to an upcoming Link extension to the university (U-Link), and Seattle Transit Blog on general restructure, called RapidRide+. The U-Link restructure was controversial in the affected neighborhood, with many opposing changes to their particular bus route.
Since the core of the plan, as with many restructure plans in North America, is to get people to transfer between frequent core routes more and take infrequent one-seat rides less, this has led to discussion about the concept of transfers in general, and specifically the transfer penalty. I bring this up because of a new post by Jason Shindler on Seattle Transit Blog, which misunderstands this concept. I would like to both correct the mistake and propose why transfers lead to so much controversy.
The transfer penalty is an empirical observation that passengers prefer trips with fewer transfers, even when the travel time is the same. Usually, the transfer penalty is expressed in terms of time: how much longer the one-seat ride has to be for passengers to be indifferent between the longer one-seat trip and the shorter trip with transfers. For some literature review on the subject, see Reinhard Clever’s thesis and a study by the Institute for Transportation Studies for the California Department of Transportation.
Briefly, when passengers take a transit trip with a transfer, making the transfer takes some time, which consists of walking between platforms or stops, and waiting for the connecting service. Passengers weight this time more heavily than they do in-vehicle travel time. According to New York’s MTA’s ridership model, passengers weight transfer time 1.75 times as much as they do in-vehicle time. In other words, per the MTA, passengers are on average indifferent between a one-seat ride that takes 37 minutes, and a two-seat ride that takes 34 minutes of which 4 are spent transferring. Observe that by the MTA’s model, timed cross-platform transfers are zero-penalty. Other models disagree – for example, the MBTA finds an 11-minute penalty on top of a 2.25 factor for transfer time.
The transfer penalty can be reduced with better scheduling. Timed transfers reduce the waiting penalty, first because there is less waiting on average, and second because the (short) waiting time is predictable. When transfers cannot be timed, I believe countdown clocks reduce the waiting penalty. Walking between platforms or bus stops can be made more pleasant, and bus stops can be moved closer to train station entrances.
However, regardless of what the transit agency does, the transfer penalty is an average. Even for the same origin and destination, different people may perceive transfers differently. Any of the following situations can result in a higher transfer penalty:
- Heavy luggage. This also leads to bias against staircases, and often against transit in general and for cars and taxis. The waiting penalty does not grow, but there may be a significant penalty even for cross-platform transfers.
- Travel in large groups, especially with children. As an example, in comments here and on Itinerant Urbanist, Shlomo notes that ultra-Orthodox Jews, who travel with their large families, prefer one-seat bus rides over much faster and more frequent train rides. Families of 3-5 are also much likelier to drive in a family car than to take an intercity train or bus.
- Disability, including old age. This has similar effect to heavy luggage.
- Lack of familiarity with the system. This is common for tourists but also for people who are used to taking a particular bus route who are facing significant route restructuring. This can also create a large bias in favor of trams or trolleybuses, since their routes are marked with overhead wires and (for trams) rails, whereas bus routes are not so obvious.
- Reading, or getting other work done in transit. For longer intercity trips, sleeping is in this category, too. This tends to bias passengers against mid-trip transfers especially, more so than against start-of-trip and end-of-trip transfers.
- Seat availability. Passengers who get on a bus or train when it still has seats available may prefer to keep their seat even if it means a longer trip, and this shows up as a transfer penalty. This does not usually affect start-of-trip transfers (buses and trains probably still have seats), but affects mid- and end-of-trip transfers.
In contrast, people who are not in any of the above situations often have very low transfer penalties. In New York, among regular users of the subway who do not expect to get a seat, zero-penalty transferring appears to be the norm, especially when it’s cross-platform between local and express trains on the same line.
Usually, people in groups 3 and 4 are the major political forces against bus service restructuring plans. They’re also less willing to walk longer distances to better service, which makes them oppose other reforms, including straightening bus routes and increasing the average interstations in order to make bus routes run faster. This is also true of people in groups 1 and 2, but usually those are not inherent to the passenger: most disabled people are always disabled, but most passengers with luggage usually travel without luggage. The one exception is airport travel, where luggage is the norm, and there we indeed see more advocacy for one-seat rides to the CBD.
The key observation here is that even a route change that is a net benefit to most people on a particular origin-destination pair is sometimes a net liability to some riders on that pair. While it’s a commonplace that reforms have winners and losers, for the most part people think of it in terms of different travel patterns. Replacing a CBD-focused system with a grid leads to some losers among CBD-bound riders and winners among riders who travel crosstown; boosting off-peak frequency creates winners among off-peak travelers; straightening one kink in a bus route leads to losers among people served by that kink and winners among people riding through. The different transfer penalties are a different matter: even on the same origin-destination pair, among people traveling at the same time, there are winners and losers.
Solutions to this issue are bound to be political. The transit agency can estimate the net benefit of a restructure, and sell it on those grounds, but it’s not completely a win-win; thus some political process of conflict resolution is required.
In this particular case, the community process is reasonable. The main flaw of the community process is that the people who come to meetings are not representative of the body of riders and potential riders, and are especially likely to be NIMBYs. For example, on Vancouver’s West Side, the community meetings for the Broadway subway were dominated by NIMBYs who didn’t want outsiders (especially students) to have an easier commute to UBC, and not by people who could use the subway, often traveling through the West Side without living or working in it.
But the conflict when it comes to transfers is between groups of people who live in the same area. Moreover, there is no clear bias in either direction. Older people, who are usually more averse to change, are especially likely to show up to meetings; but so are transit activists, who are more informed about the system and thus more willing to transfer. People with intense familiarity with their home bus line are balanced out by people with familiarity with the system writ large. There is also no opposition of a widely shared but small benefit to most against a narrow loss to the few: instead, such reforms produce a large array of changes, ranging from major gains to major losses. Finally, frequent bus grids do not generate much transit-oriented development, unlike rail, which produces NIMBY contingents who are against transit investment on the grounds that it would lead to upzoning and new development (as in the above example from Vancouver).
The result is that here, political control can lead to positive outcomes, as the transit agency is required to consider the effect of change on many subsets of riders. Frequent grids really do generate losers, who deserve to be heard. In this case, it appears that they are outnumbered by winners, but the winners have as much of a political voice as the losers; there is no large gap between good transit and what the community thinks good transit is.
Adonia Lugo has a post criticizing Vision Zero, an American movement that aims at reducing the number of pedestrian and cyclist deaths from car accidents to zero. Adonia makes a lot of criticisms regarding lack of diversity within US bike advocacy, which I’m not going to discuss because I’m only tangentially familiar with it, via the general urbanist connection to Streetsblog. Instead, I’m going to zoom on one criticism, in which Adonia also invokes transit: Vision Zero activists look to a slate of European countries for guidance on making streets safer, including Sweden (which, alongside Norway and Denmark, has nearly the lowest car accident death rates in the world), and Denmark and the Netherlands (which are famous for their urban cycling facilities). Adonia’s response is,
With my inclusion filter on, it sounded like another example of white bike advocates looking to Northern Europe for solutions instead of turning to urban communities in the U.S. to find out how they’ve managed to get by walking, biking, and using transit all these years.
This is where I lost sympathy. What Adonia is asking, essentially, is for more respect for her (and her peer group’s) local knowledge, which is based on American cities in which few people who can afford cars take other modes of transportation. In the entire US, the only city where significant numbers of people who can afford cars take public transportation is New York, and there is not a single city where significant numbers of people who can afford cars ride bikes to work. This means that any discussion of improving transit access must include at least some knowledge of what happens outside the US.
Local Knowledge and Denigration
The problem is that talking about what happens outside the US shifts the locus of expertise from people with local knowledge to people with global knowledge. If an American city talks about adopting ideas from one of its neighborhoods, or even from a nearby city, there’s a lot of local knowledge, in the form of people who live or have lived in that area, or know many people who live there, and can evaluate a policy as to its success or failure. Internationally, there isn’t any, outside specialized forums; even highly educated Americans are usually monolingual, have never lived outside the US, and aren’t really plugged into the political debates in other countries, except maybe Canada.
The result is denigration. I’m not very plugged into cycling advocacy, so I’m going to use public transit for concrete examples. I have accepted that whenever I propose that comes from another country, someone is going to say “that’s there, this is America.” I definitely got this response when I started proposing modernizing regional rail in New York: “you are not a real New Yorker.” New York is the worst in the US in that it resists any ideas from other cities, even domestically.
It’s ultimately a defense mechanism against something that’s literally foreign, which the activist cannot evaluate because they and the people they trust haven’t really seen this in action. Thus, many Americans choose to believe that US public transportation is not a failure, that it’s just in bad circumstances and has little to learn from Europe. I’ve seen New Yorkers make remarks such as “there is no history of underinvestment in Europe” (yes, there is – look at Berlin during the Cold War, or at the removal of streetcars in postwar France and West Germany).
For example, I’ve found that bringing up Stockholm as an example of good transit in the US gets me accused of trolling, repeatedly, more so than bringing up London or Paris. The reason is that, to New York-based readers, London and Paris are almost peer cities, and to other Americans, London and Paris are equivalent to New York; therefore, they match the perception that public transit works in old, huge cities, but not in smaller or newer ones. In some ways, I think Stockholm is a better example of what US cities should aspire to, precisely because it is a small city. It is also not as old as London or Paris; between 1950 and 2010, Stockholm County’s population grew by a factor of 1.9, whereas metro Philadelphia’s grew by a factor of about 1.6, Boston’s by a factor of 1.4, and Chicago’s by a factor of 1.7. Boston in particular had a very good public transit network in 1950, and it systematically dismantled it and bypassed the remains, so that the metro area public transit mode share is only 11%. Expressed differently, metro Boston has 55 annual rail trips per capita, whereas New York has 95 and Stockholm 200. Of course, the cities of the US Sunbelt have had far more postwar growth than Stockholm (though many are comparable to Vancouver) and even lower transit usage than Boston and Philadelphia, and there indeed wholesale imports of European ideas are less practical. But it says a lot that in the oldest US cities, with the street layout most similar to most of Europe’s cities’, transit usage is still very low.
Adonia denigrates ideas she considers racist, but this denigration cuts across political and tribal lines in the US. I have seen considerable denigration from American urbanists that city centers could ever be family-friendly whenever I mention generations of families living in the central parts of Tel Aviv, or Vancouver, or Stockholm. There’s even a Twitter account dedicated to this denigration, The Suburbanist. Of course, what’s missing is the history of white flight and racism – not that Israel, Canada, and Sweden are less racist than the US, but their racism did not involve leaving inner cities to low-income minorities. But mentioning that cities aren’t bad places for families reminds certain people that they’re leaving the cities because they don’t like minorities, so they lash out. Nowadays, the Suburbanist engages in open racism, but this wasn’t the case a few years ago, nor is it the case with a large number of Americans who, in comments on various blogs (never here as far as I remember), yell at me for bringing up foreign cities.
Not Invented Here, Periphery Version
When planners and managers denigrate foreign ideas, this is called Not Invented Here syndrome. It is common in American transportation planning. I believe the reason Vision Zero sticks to “it works in Scandinavia” is to at least try to confront those planners with the fact that, by international standards, they have failed to promote road safety, especially for pedestrians and cyclists. Certainly this is the reason I bring up the failure of every US city except New York to maintain respectable public transit usage.
Now, the two centers of public transportation innovation in the world – Europe and Japan – brim with their own NIH problems, toward each other. Their rolling stock markets are almost entirely distinct, due to a combination of protectionism and regulations. Japan is outside the European Train Control System umbrella and keeps developing its own signal systems, while ETCS in turn is based on the features of older systems in the major European countries and not in Japan. Japan lags Europe in automation (driverless metros are less common there), track capacity in trains per hour, and small-city cost-cutting innovations such as proof of payment. Europe in turn has higher big-city operating costs, more accidents, less punctual trains, and usually heavier trains. Both of those centers would benefit from adopting each other’s ideas.
And yet, things work. There is enough indigenous transit expertise in Japan that despite missing out on European innovations, Japanese transit systems work well. There has to be; Tokyo has comfortably not only the highest rail ridership in the world, but also the highest rail ridership per capita, about 400 annual trips, versus 200-250 in the most transit-oriented European cities. Of course, Europe’s own indigenous expertise is nothing to scoff at, either.
The US is not in the center of public transportation. I am going to develop this center-periphery dynamic in a later post, tentatively called Unbroken Country: The Periphery’s Manifesto, which will also go specifically into Israel’s domestic problems with public services. But, in short, the US acts as if it is in the center, since it is one of the centers of the global economy, and is the undisputed center of global society and culture. This is what leads to NIH syndrome and denigration – Americans think they’re doing well because, in most aspects, they are. But when it comes to transportation, the US is a peripheral region (even road construction techniques lag Europe’s), and thus, its NIH problems deprive the public discourse of much-needed knowledge.
For a concrete example, let us consider rail signaling. ETCS Level 2 is designed around the needs of the biggest European countries, where the main lines are at least double-track, there is much more passenger traffic than freight traffic, freight trains are light because bulk freight goes by sea, and the population density near the main lines is high. Neither the US nor Sweden fits this. Most importantly, both countries have highly-trafficked freight lines passing through remote territory – Norrland in Sweden, the Interior West in the US. Sweden, which does not have NIH syndrome with respect to the rest of Europe, worked on developing a lower-cost version of ETCS, called ERTMS Regional; but in the US, the freight railroads as well as the commuter railroads (even in the Northeast, where ETCS Level 2 is appropriate) ignored ETCS entirely and developed their own incompatible systems, on the grounds that ETCS doesn’t meet unique American needs.
The Mystery of the Foreign
People who don’t know something often consider people who do know it to be mysterious, almost magical. It is a commonplace that, in low-literacy cultures, illiterates viewed the written word as magical; see this account of Early Modern Italy, but also a counterpoint from Ancient Greece. Of course, literacy in the first world today is universal, but two to three more modern examples persist, of relevance to US transit advocacy:
- Math, among people who are not mathematically- or technically-minded. I was asked recently whether my background as a mathematician influences my blogging, and explained that I use fairly basic math, but I am not afraid of numbers, which means I am not afraid of trying to compute cost figures, train speeds, and so on. I am also secure enough in my mathematical knowledge that I am not afraid of nitpicking technical points, or of being nitpicked.
- Foreign languages, among monolinguals. I do not know enough monolingual Hebrew speakers to confirm this in generality, but monolingual Anglophones seem to treat foreign-language information as somewhat magical. For example, the vibe I have been getting both here and on Twitter is that if I cite a foreign-language Wikipedia this gets more respect than if I cite English Wikipedia. The monolingual Anglophone can verify an English Wikipedia citation, and maybe notice small mistakes in the article, but not a foreign-language citation.
- This may be the same as 2, but, foreign experience. Relatively few native-born Americans have lived outside the US, so people who do are treated as having unique expertise about the country or continent they were in.
Point 3 applies even to knowledge obtained by other means than living in a country. In 2005, when progressive pundits were talking about how to implement universal health care, there was so little knowledge about how universal health care systems worked that Ezra Klein became an A-list pundit out of a few short profiles of various countries’ health care systems, The Health of Nations (see 2007 version here). I, of course, have gotten a lot of mileage out of Googling various cities’ subway construction costs and putting them together.
The problem with viewing the foreign as mysterious is that it leads to wholesale import of ideas that may not work, or may require significant tweaks before working. Bus rapid transit, an efficient mode of travel in middle-income Bogota and Curitiba, does not port to high-income cities well: paying six bus drivers rather than one train driver to avoid spending money on rail construction is a bigger problem in a country with a GDP per capita of $40,000 than in a country with a GDP per capita of $13,000. There are successful tweaks, such as open BRT (see description here), but Jaime Lerner and ITDP have pushed Curitiba-style closed BRT. Here, the lack of detailed knowledge about what exactly makes BRT work leads American cities – and no European or Japanese cities – to propose ill-thought closed BRT.
Another example of a bad import caused by this kind of magical thinking is the mixed-traffic streetcar. Here, American transit advocates don’t just think in terms of “Europe has trams” but also in terms of “the US used to have trams but we ripped them all up in the 1950s.” Here, US cities import a mode of transportation that exists as a legacy around Europe, but is uncommon on new-build lines, and is used mainly as a compromise when the streets are so narrow it’s impossible to give streetcars dedicated lanes without closing the streets to car traffic. As the US does not have cities with such narrow streets, outside a few old neighborhoods in Boston and New York with good subway service, its import of mixed-traffic streetcars is bad transit.
This relates to the point I made above, about local knowledge and bullshit. I know that many people view me as somewhat mysterious for having such a different knowledge base from Americans. It means I can comfortably bullshit about many points. I don’t bullshit, but it’s likely I’m making some mistakes, and I try to encourage my commenters to check me on them. But this requires commenters who are also very technically-minded and don’t think that just because I say something, it must be true.
In a sociopolitical environment in which the public and the activists have very little knowledge about imported ideas, whether they support them (usually viewing them as magical) or oppose them (usually denigrating them) is based on whether they identify with and trust the people proposing the import. Adonia does not trust the people who promote Vision Zero, since she views them as too white and male and too insensitive to the concerns of nonwhites, for example regarding police enforcement of speed limits. Conservatives, in turn, do not trust those people because they view them as cosmopolitan liberal urbanites, whence Tea Party opposition to various commuter and intercity rail expansions.
Consider high-speed rail, which is entirely a foreign import. The political coalitions for and against HSR in the US are based entirely on cultural identification with the proposition that Europe is better at something than the US. In particular, business-class small-government conservatives, who tend to be big fans of HSR in the countries where it exists, hate it in the US; George Will claimed it would make Americans more amenable to collectivism, and in Texas, right-wing populists have tried blocking an entirely private HSR scheme and possibly connecting it to the Democrats. In contrast, the populist left in the US (for example, Robert Cruickshank) supports public transportation infrastructure because of the environmentalist tie-in; in contrast, in the UK, Jeremy Corbyn, who Robert is otherwise a big fan of, is at best lukewarm toward HS2. In Europe, the left is more pro-rail than the right, but the populists on both sides are more anti-rail, and the overall left-right gradient is small; in the US, the left-right gradient is large, and this comes from the issue of trusting the transportation program of countries that Americans associate with welfare-state social democracy.
The result is that any dialog based on foreign transit has to involve a certain amount of mystery and trust in the planners. I have no trust in the planners, because of various wheel reinventions proposed even by reformists, but I know enough to discuss technical items and not just the people. Generally, other people with this technical background come from a similar social background: educated, geographically mobile, white, male. The result is that, as with HSR, people’s opinions on these projects track their opinions of the tribe in the US that can talk at this level of technical detail. Usually it’s not even racial, not when it comes to transit – it’s mostly suburbanites looking for ways to screw the urbanites. If anything, nonwhite neighborhoods in the US are underserved relative to best practices, and agencies sometimes sandbag the idea of more service there. Adonia just weaponizes this in a different direction from the usual.
Local and Global Knowledge
I’m not going to rule out the possibility that there is valuable local knowledge in the US about cycling, but I know that there is very little such knowledge about transit, and given where the high cycling use is, I doubt cycling is much different. This means that American knowledge alone is worth approximately nothing. Jarrett Walker is of course American and has a lot to contribute, but as a consultant, he has extensive Australian and Canadian experience and some East Asian experience. The bus grid as an idea predates Jarrett – Jarrett attributes it to (at least) 1980s-era reforms in Portland – but by itself it’s not a game changer.
The problem here is that to implement something successfully, the people who run it need both local knowledge and knowledge about places that work, i.e. global knowledge. If there aren’t enough people with both, the solutions will not work, because people who can’t contradict what the planners are saying can’t exercise democratic accountability over them. One of the reasons Europe does transit better is that there’s more foreign knowledge here; see above for the contrast between how the US and Sweden handle rail signaling.
In fact, if you look at the examples above in the Mystery of the Foreign section, they both come from failure to adapt a successful foreign system to local conditions – namely, high wages in the case of BRT, and wide streets in the case of trams. I presume that the people who build mixed-traffic streetcars and BRT lines in the US have plenty of local knowledge, but they lack the global knowledge to appreciate what exactly makes those systems successes abroad. Conversely, international consultants don’t have the local knowledge to say “no, this is not a good fit for your needs” (besides, usually that’s not what they’re paid to say). This problem is especially acute with innovations in developing countries, such as BRT, since the large gap in incomes leads to different situations requiring major changes in adaptation, much more so than the relatively minor differences within the developed world.
Now, consultants can pick up local knowledge. Their trade is not just to possess global knowledge, but also to know how to acquire local knowledge rapidly when they’re working in a city. They run surveys, look at detailed breakdowns of costs and ridership to tease out patterns, quiz the in-house planners, and travel all over the city to gain ground-level impressions. The problem is that if the consultants are the only people who have both local and global knowledge, then there is no democratic accountability, and they have an incentive to bullshit. Of course, Jarrett specifically does not bullshit, but he has occasionally made mistakes (the main one, anchoring, I’ve been meaning to write about for two years), and of course my personal trust in one consultant is no substitute to systemic, institutional trust in the ability of the technocrats to response to what is essentially peer-review practiced by the community of local advocates.
It means the only way forward is for activists in US cities to pick up global knowledge and engage with such plans on the details. In the case of cycling, I could think of any number of reasons why US cities cannot emulate the success of Amsterdam and Copenhagen; but then again, it’s possible these reasons are all irrelevant, in the same manner many reasons Americans offer for why they cannot have the same per capita transit usage of Sweden are irrelevant.
I am also suspicious of the fact that, per Adonia, bike advocates look to Northern Europe as a source of examples of success. The biggest bike share systems in the world are all in China, and in Japan, bikes have largely replaced buses as the preferred mode of access to the train station in the suburbs. US bike advocates owe it to themselves and to their cities to be informed about Chinese and Japanese practices, and, if they clash with Dutch and Scandinavian practices, then to have opinions about which ones to pick and how to synthesize them in a local context. The only way forward for people in the periphery, by which I mean all of the US when it comes to any non-car transportation, is to know how the core works well enough that they can adapt its innovation without being so reliant on outside experts.
There are various observations I would like to make about the urban geography of immigrants: where immigrants often land, what neighborhoods they prefer, how they differ both from the preference of natives, and how they differ from the policies that governments, run by enfranchised voters, implement. Many of the points I’m about to make I’ve made in comments before, on the Urbanophile and other urbanist blogs. I was compelled to write this by the news stories of the migration wave of Syrian refugees into Europe, but I would like to stress that I am writing about both labor migration and humanitarian migration, and that this post has been on my to-do list for years. The points here are often true of nearly all classes of immigrants: refugees, low-skill work migrants, high-skill work migrants; only family reunification is outside the scope of this post, but even family reunification usually consists of the family of a migrant immigrating as well.
The dominance of rich regions
Eurostat has regional per capita income figures for most of Europe. After subtracting rent and interest payments, incomes in London are 46% higher than in the United Kingdom as a whole, and twice as high as in depressed regions such as Birmingham and Sheffield. In Ile-de-France, the incomes are 38% higher than in France as a whole and 65% higher than in depressed regions such as Nord-Pas-de-Calais. In Northern Italy, the incomes are 80% higher than in Southern Italy, while if we compare the richer parts of the North (e.g. Lombardy) with the poorer parts of the South (e.g. Sicily and Naples), the gap grows to a factor of two, as in the UK. In all three countries, the rich regions have far more immigrants per capita than the poor regions. As of the 2011 census, 13.4% of the population of England and Wales is foreign-born, but in London, this rises to 36.7%. In France, 8% of the population consists of immigrants, but in Ile-de-France it rises to 17%: see PDF-p. 24 of an INSEE factsheet, and note also the table at the top of the page, showing far fewer immigrants live in rural areas than natives. In Italy, a breakdown per region shows 8-11% of the people in the Northern and Central regions are immigrants compared with 2-4% in the Southern ones.
Let us go over the reasons why. After all, in principle, both immigrants and natives are more interested in earning high incomes than in earning low incomes. So to see this, let us look at the situation from the point of view of someone who grew up in a poor region of such a country. The Brummie, the Sheffielder, and the Liverpudlian know that the Londoner makes more money than they do. But they can’t just move to London and expect to earn the same income a native Londoner earns. Their local social networks are precisely the ones they can rely on for job search tips, and after they’ve begun working they acquire local bosses who can give them reference letters, and neither group lives in London; this means that they’d make far less money than an equally qualified Londoner if they moved. This is on top of the personal disutility one suffers when moving, independently of the wage. This is less true of highly educated workers, who move in national and even international networks, whence the brain drain problem in rural and depressed areas.
Of course, immigrants short-circuit this, because immigrants usually come into the country without a social network in either its rich core or its depressed periphery. Logically, they go to where there are jobs, and to where the jobs pay more.
The situation I described above is true for first entrants. Once a community establishes itself in a city, the situation for the new immigrant changes. An Indian who wishes to emigrate to Canada can often rely on networks of Indian-Canadians, both first- and second-generation. This Indian’s situation is the exact opposite of that of the native of a depressed region: the native of Atlantic Canada, the poorest region of English Canada, has a social and professional network in their home area but not in Toronto or the other major cities; the Indian has a social network in Toronto and Vancouver but not in Atlantic Canada. This means that even when the income advantage of the traditionally rich cities disappears, immigrants will keep moving to them.
For three examples of this principle, let us look at the UK, Canada, and finally the US. In the UK, look at the table above again, and observe that, after London and the Southeast, the part of Britain with the highest foreign-born percentage is the West Midlands (the region, not the county), with 11.2%. This is because Birmingham used to be a rich city: Jane Jacobs compares it favorably with Manchester in The Economy of Cities, published in 1970. It declined in the 1970s, but by then the South Asian migration wave to Britain was already well underway. In Canada, Vancouver and Toronto remain rich, but Calgary has far surpassed them in incomes due to the oil boom, and is only now receiving comparable numbers of immigrants; 26% of its population is foreign-born, versus 40% of Metro Vancouver and 46% of the Greater Toronto Area (see data here). Finally, in the US, Los Angeles has remained one of the top destinations for immigrants, even though its incomes have slipped far below those of not only New York and San Francisco, but also Boston, Chicago, Minneapolis, Denver, and other cities that are only beginning to see the same immigration numbers Los Angeles has had for decades. In general, the states bordering Mexico have long had elevated numbers of Mexican immigrants, going back to the braceros and even before, ultimately tracing to the large Mexican presence in those states after the US conquered them in the Mexican War.
Once there is an established community of immigrants from a particular country or ethnic group, they of course encourage further migration, in addition to shaping the migration to reach the same regions and city neighborhoods. This can take the form of social networks for community support and for finding work, but also the form of knowledge of migration routes. See, for example, a Guardian article from yesterday explaining the Syrian migration wave as a result of years of social learning in Syria of the best routes for trekking into Western Europe. Conceivably this could also include legal knowledge of how to apply to asylum and which countries have the most favorable policies.
At the same time, as the national or ethnic community in the target country gets larger, it begins to exhibit domestic ethnic dynamics more than immigrant dynamics. Part of it is that the immigrants eventually naturalize and acquire voting rights and enough informal political power to have some influence over how their city is run. Part of it is that after a few decades there’s a rising cadre of well-assimilated second-generation immigrants. Part of it is that between the presence of a community and a natural trend of drift in which the relative incomes of cities in the target country change, immigrants eventually behave more like native Brummies and Sheffielders. As a result, most of what I say is true largely of recent immigrants, and gradually becomes less true of people who immigrated decades ago.
The primacy of work
Nearly all immigrants intend to work for a living. This is obviously true of work migrants, of all classes, but it’s also true of refugees, which leads many nativists to mock them for not really seeking asylum but taking jobs from natives. One particularly cruel article that appeared in my Twitter feed from multiple sources, proposing to detain asylum seekers and confine those who meet the criteria for refugees to restricted areas far from the job-rich core, makes the point that people who try to move to where there are jobs are (illegal) work migrants.
The reality is that one of people’s basic needs is work. Idleness is not a normal state of affairs for a person; when as many as a quarter of the people in the workforce are unemployed, it’s a depression and a national crisis. In developing countries there is a lot of covert unemployment, in the sense that (especially in rural areas) a large majority of workers may be redundant if first-world technology is imported, but people still work for a living and earn a wage. In India, to take an example of a third-world country in a state of peace, the unemployment rate was 2.7% as of 2013. To say that a migrant who wants work is necessarily a work migrant is equivalent to saying that a migrant who wants shelter is moving to the first world for its higher housing quality and that a migrant who wants their children to be able to go to school is moving to the first world for its better schools. This need for work drives everything: immigrants from poor countries will work under the table, take jobs far below their skill level, and scab, and they’ll make sure they stay employed, as they would at home, except that these compromises wouldn’t really be necessary, since the third world has much more unskilled work to do.
That said, the need to work in an environment where the migrant has no local social network is the primary determinant of where the migrant lives. Given free choice, immigrants tend to cluster where there is easy access to jobs, ideally on foot in order to avoid paying exorbitant sums of money for a car. A rapid transit network makes it easier for people to disperse; in its absence, as in Tel Aviv, the migrants will cluster in a few cheap central neighborhoods, but even when it exists, migrants will try living where they can get to work easily. The greatest concentration of immigrants in Ile-de-France is in Seine-Saint-Denis, an inner-suburban department that in most other countries would be an outer neighborhood of Paris.
Finally, I wish I didn’t have to explain this, but given that it’s a politically charged issue right now, we see a lot of nativist complaints that immigrants are not seeking work, but welfare. The above article is one example of the genre, ultimately defining every social service immigrants use, such as schools, as welfare. Another example is a report by the anti-immigration Center for Immigration Studies, which finds that under a definition of welfare that excludes programs used by retirees (i.e. a large majority of US social spending), immigrants to the US use welfare more than native-born Americans.
The “work or welfare?” question can be answered directly by looking at where immigrants go when they get the chance. And the answer is decisively work. Welfare is to a first-order approximation the same throughout England or France; and yet, immigrants don’t choose to live in cheap areas of those countries to stretch the pounds and euros longer, but instead cluster in the cities where the jobs are. Scotland has a more generous welfare state than England, but it actually has fewer immigrants, about 6.5%. Singapore, with no welfare state whatsoever, tops the list of countries that people in a global Gallup poll expressed a desire to move to relative to its population; it’s followed by Saudi Arabia, New Zealand, Canada, and Australia (all five have already taken in many immigrants, making this a global version of the point I made about established communities). New York and San Francisco, whose biggest government interventions in the market, their rent control and public housing schemes, only benefit natives and people who immigrated decades ago, keep getting new immigrants of all social classes who are willing to pay exorbitant rents to have access to their strong local job markets. In contrast, rich suburban school districts in the Northeastern US only get upwardly-mobile professional immigrants.
In the rest of this post, I will expound on what the primacy of work means for housing policy.
Housing choice, overcrowding, and prejudice
Within a given city, immigrants do not choose where to live on the same criteria as natives. First, and this applies to immigrants of all categories and even to some domestic migrants, they lack the prejudices of locals. New Yorkers know which neighborhoods of the city are good and which are bad, whatever good and bad mean. New York is globally famous due to the influence of American media; in Israel, all that’s penetrated the cultural barrier is that Manhattan is the center, Brooklyn exists and has a lot of Jews (I remember being puzzled at why Super Mario isn’t Jewish when I was 10), and Harlem is a poor black neighborhood. In 2006, a few weeks after I moved to New York, I was in Bedford-Stuyvesant for an event, and nothing about the neighborhood looked poor to me. With my American cultural knowledge today I’d be able to tell that project towers, certain kinds of bodegas, and large concentrations of black people in that part of Brooklyn all correlate with poverty, but at the time, I couldn’t. I’m not the only one: a white Canadian blogger I know who moved to New York a few years before I did walked around Bed-Stuy looking for an apartment and found it nice, and when they reported where they were on a forum, people’s reactions were a mix of horror and outrage: “you’re crazy, you could have been killed” and “you evil gentrifier.”
Second, as a subset of the principle that new immigrants are more likely to move to the rich core cities than to poorer peripheral cities, new immigrants tend to be in the center of the city than in the suburbs (and again, this also somewhat applies to domestic migrants). Suburban jobs often pay less – the highest-earners in the favored-quarter suburbs in the US commute to the primary CBD, whence for example Daniel Kay Hertz’s observation that in suburban Chicago and Philadelphia, transit riders (CBD-bound commuter rail riders) outearn drivers. Here, there is a split between skilled and unskilled migrants. Skilled migrants often move to a city because, in the specialized global economy, their skills are a good fit for its primary industry; this means that if they’re moving to the Bay Area, it’s usually to work in the software industry or at one of the universities, rather than to be lawyers or accountants, which means their housing choice is disproportionately oriented toward where those industries cluster. Unskilled migrants have to consider transportation costs, making it hard to live in the suburbs, and on top of that, unless they’ve already been matched to a suburban employer to get a work visa (for example, to work as a maid in a particular house), it’s easier for them to find work in the central city.
For migrants from developing countries, there is one more consideration, which leads to the most glaring feature of low-income immigrant neighborhoods: people in the third world make more compromises on housing space to have access to jobs, leading to overcrowding. It’s often a step up from where they’re from anyway. New York has a profile of each of its community boards, based on the most recent census; before the move from the long-form 2000 census to the short-form 2010 census, there was detailed data about income, education, and crowding in each census tract, and the most overcrowding in Manhattan was not in the poorest neighborhood (East Harlem) but in Chinatown.
The basic issue here is that low-income immigrants from developing countries are unlikely to make enough money to cover rent at what first-world natives consider a respectable living standard. There’s a certain minimum housing quality in the developed world: minimum unit size, insulation, indoor plumbing, electricity, construction materials. It’s hard to violate these regulations, because buildings are conspicuous – for the same reason, there’s no equivalent of Uber or Airbnb for housing that bypasses zoning laws. But as the Airbnb example shows, it’s easy enough to subvert or outright ignore regulations about who occupies a residential unit. Hence, immigrants economize on space, either living multiple unrelated adults to a room (as black refugees do in South Tel Aviv) or housing a large extended family in a suburban house meant for a nuclear family (as Hispanics do in various American suburbs, raising the ire of the local natives).
Many immigrants return to their countries of origin, or move elsewhere, after a few years. This fact is deemphasized in the public discourse, shaped by the US narrative of people from all over the world coming to live the American dream. But in reality, migration is often seasonal, and a significant fraction of immigrants return; see, for example, a write-up of Italian-American history. More recently, we see this with illegal Mexican workers in the US, who would move back and forth across the borders seasonally, until the tighter border controls built after 1986 made this so difficult they moved to the US permanently (this is the work of Douglas Massey, Jorge Durand, and Nolan Malone, summarized here and here). Many refugees return to their home countries after the war or crisis ends. Skilled migrants often move between countries, as I do.
This creates a situation in which many recent immigrants do not know where they will live in five years, not even on what continent, even excluding the possibility of deportation. This does not mean immigrants do not care about the areas they live in. On the contrary. But they lack the deep social ties that local neighborhood activists have, and this makes it harder to engage politically on a level that appeals to the local notables. It takes years just to learn who the local notables are!
Hence, the immigrant really is a transient. “Transient” is just a dysphemism for someone who does not have enough social capital in an area to know definitively that they’re going to stay there permanently. Unsurprisingly, since community decisions are made by people who know the local notables and their networks, those decisions do not have recent migrants in mind. Even domestic migrants, who unlike international ones have the right to vote, are excluded. This is where community hostility to more housing comes from: why worry about how high the rent is for people you look down on as transients?
As far as housing goes, YIMBY groups have begun to build a national US network for more construction, with some international reach, so that recent domestic migrants to New York, San Francisco, and other expensive cities can rely on their national social capital to compensate for their lack of local social capital. But this is necessarily going to address primarily the needs of the people who participate in YIMBY networks, who tend to be white, educated, and American. I happen to think more housing in a region will benefit all recent and prospective immigrants to it, but there’s a wealth of other local political issues that are not covered in the YIMBY umbrella (for example, policing), and there, the community’s ability to abuse residents who got here more recently than it would like is not limited.
Finally, let me discuss the difference between how immigrants think and how governments elected by natives think immigrants ought to think. As I’ve established above, immigrants’ decisions are driven largely by the need for a job, even when the original purpose for the move was not work-related. This means that they will make compromises and live in a way that the native public deems substandard, as in various outrages of immigrant overcrowding.
The question is what to do about it. In capitalist countries (i.e. pretty much everywhere, except Cuba and a few other communist holdouts), the government professes to believe that people are economically rational. There are large sectors in which this is not true – for examples, health and education are mostly public in most developed countries – but in housing, most first-world countries use a free-market approach. Central cities often do provide extensive public housing, and zone tightly to prevent new construction that offends community sensibilities, but people can still buy and sell houses and move, and advocate for themselves politically so that they wouldn’t be stuck with housing that is by regional standards deficient.
Except, well, that people who lack voting rights can’t act politically except through their ties to enfranchised voters, and new migration waves lack these ties. The worst example of this is in Sweden, which provides refugees with public housing, but only where it’s cheap. Thus, instead of having a liberalized enough urban housing market so that refugees could live in overcrowded conditions in Stockholm, it either disperses them to peripheral towns where they know nobody and can’t work, or concentrates them in low-income ghettos. Malmö, which like Birmingham used to be a bustling city but deindustrialized and has high unemployment, is one of the prime locations for immigrants to Sweden; so is Södertälje, a Stockholm suburb infamous for its high unemployment.
One of the most salient features of being an immigrant is being a social problem. Every difference between the immigrant and the native will be used politically, in either direction, even if it is the result of normal variation between groups and economic sectors. And here, governments that refuse to consider immigrants’ own housing decisions are creating social problems for the future by creating new ghettos from scratch. For its own working class, Sweden built the Million Program; for immigrants, not a chance. Between overcrowding and joblessness, immigrants choose overcrowding, when they can. When they can’t, the government is choosing joblessness for them.
Twenty-five billion dollars. The New York region’s political heavyweights – Andrew Cuomo, Chris Christie, Chuck Schumer, Cory Booker, Bill de Blasio – all want new Hudson tunnels, without any state funding for them; Schumer is proposing federal funding and a new interstate agency, parallel to the existing Port Authority, and a total budget of $25 billion. This is the highest figure I have seen so far; Amtrak still says $16 billion and Cuomo says $14 billion, and it’s likely the Gateway tunnels are indeed about $16 billion, while the remainder is for associated projects, such as fully four-tracking the line from Newark to the tunnel portal, a distance of about 11 kilometers. It is not my intention to criticize the cost; I’ve done that before.
Instead, I would like to point out that each time Gateway is the news, there usually seems to be a fresh cost escalation. Is it a $10 billion project? A $14 billion project? A $16 billion project? Or a $25 billion project? And what is included exactly? Amtrak does not make it clear what the various items are and how much they cost; I have not seen a single cost estimate that attempts to establish a baseline for new Hudson tunnels without the Penn Station South component, which would provide a moderate short-term boost to capacity but is not necessary for the project. The articles I’ve seen do not explain the origin of the $25 billion figure, either; it may include the tunnel and full four-tracking of Newark-New York, or it may include additional scope, for example Amtrak’s planned vertical circulation for a future (unnecessary) deep cavern for high-speed rail (see picture here).
The main issue here, the way I see it, is the interaction between public trust and political self-aggrandizement. It is common in all aspects of Israeli governance for new ministers to announce sweeping changes and reorganizations, just to remind the country that they exist and are doing something; this generally makes it harder to implement gradual reforms, and makes it completely impossible to do anything by consensus. Implementing a plan that was developed by consensus over many years makes one a bureaucrat; leaders change everything. In the US, this is the case not everywhere in government, but at least within public transportation infrastructure.
As we see in the case of Schumer’s call for a new interstate authority, the changes a heavyweight politician makes in order to appear as a leader have nothing to do with real problems that the project may have. Solving those problems requires detailed knowledge of the project at hand, which is the domain of bureaucrats and technocrats, and not of heavyweight politicians. Even a heavyweight who understands that there is a problem may not know or care about how to fix it: for example, Christie used the expression “tunnel to Macy’s basement,” invoking the deep cavern, to explain why ARC was wasteful, but chose to cancel the project rather than to remove the cavern and restore a track connection from the tunnel to Penn Station, which was in the official ARC Alt P plan until it was cut to limit the cost overruns. Managing a project is hard, and is, again, the domain of technocrats. The heavyweight will grandstand instead, regardless of whether it means canceling the project, or proposing an entirely new layer of government to build it.
As for trust, let us look at the benefits of new Hudson tunnels. The traditional, and least objectionable, is added capacity: the existing tunnels are currently at capacity during rush hour, and there’s much more demand for rail travel from New Jersey to Manhattan than they can accommodate. We can measure this benefit in terms of the combination of increased ridership from more service from more suburban areas, reduced crowding, and possibly slightly higher speeds. As a crude estimate of this benefit, current New Jersey Transit ridership at Penn Station is 87,000 per weekday in each direction. Doubling capacity means roughly doubling ridership, which would come from a combination of induced demand and diversion of traffic from cars, Port Authority buses, and commuter rail-PATH connections. This means the new tunnel can expect about 175,000 new commuter rail trips per weekday. At $10,000 per weekday trip, which is about average for very large non-US cities’ subway extensions, this justifies $1.75 billion. At $20,000, about the same as the projection for Grand Paris Express, Crossrail, and Second Avenue Subway Phase 1, all of which are justified on grounds of ridership and capacity on parallel lines, this is $3.5 billion. At $40,000, about the same as old projections for Second Avenue Subway Phase 2, which I used to analyze de Blasio’s Utica subway proposal, this is $7 billion. A $25 billion budget corresponds to a cost per rider well into the range of airport connectors.
Now, I’d like to think that informed citizens can look at these costs and benefits. At least, the fact that public transit projects only cost as much per rider as Gateway if they’re airport connectors (thus, of especial interest to the elites) or if something very wrong happened with the ridership projections, suggests that there is, normally, a ceiling to what the political system will fund. Even at $14-16 billion, the two states involved and the federal government groaned at funding Gateway, speaking to the fact that it’s not, in fact, worth this much money. In contrast, a bigger project, with bigger benefits, would be funded enthusiastically if it cost this much – for example, California already has almost this much money for high-speed rail, counting Prop 1A funds that are yet inaccessible due to the requirement of a 50/50 match from other sources.
Against this background, we see scare stories that Gateway must be built for reasons other than capacity and ridership. The old tunnels are falling apart, and Amtrak would like to shut them down one track at the time for long-term repairs. The more mundane reality is that the tunnels have higher maintenance costs than Amtrak would like since each track can only be shut down for short periods, on weekends and at night. This is buried in technical documents that don’t give the full picture, and don’t give differential costs for continuing the present regime of weekend single-tracking versus the recommended long-term closures. The given cost for Sandy-related North River Tunnel repairs is $350 million, assuming long-term closures, and it’s unlikely the present regime is billions of dollars more expensive.
I am reminded of the Tappan Zee Bridge replacement: the existing bridge has high maintenance costs due to its age and poor state, but the net present value of the maintenance cost is $2.5 billion and that of the excess maintenance cost is less, both figures well below the replacement cost. The bridge itself is structurally sound, but in popular media it is portrayed as structurally deficient. This relates to the problem of heavyweight politicians, for the Tappan Zee Bridge replacement is Cuomo’s pet project.
More fundamentally, who can trust any claim Amtrak makes about the structural soundness of tunnels? It says a lot that, when I asked on Twitter why transportation authorities do not immediately shut down unsafe pieces of infrastructure, various commenters answered “politics,” and on one (I believe James Sinclair) suggested that Amtrak order an emergency closure of one of the Hudson tunnel tracks just to drive home the point that new tunnels are necessary. I would like to stress that this is not Amtrak or a heavyweight proposing that, but the mere fact that commenters can seriously talk about it is telling. Most of the writers and commenters on the US transit blogosphere are very progressive and hate the Republicans; I have not seen a single comment recommending that the Democrats steal elections, fudge official statistics to make the party look more successful, or arrest Republican politicians on trumped-up charges, because in the US (and other first-world democracies), this is simply not done, and everyone except conspiracy theorists recognizes it. But politicizing the process of deciding which infrastructure projects are necessary for safety purposes and which are simply service expansions is normal enough that people can propose it half-seriously.
This brings me back to the issue of what I want the politicians to do, and what I expect them to do. What I want them to do is to be honest about costs and benefits, mediate between opposing interests (including different agencies that fight turf battles), and make decisions based on the best available information. This would necessarily limit costs, since, from the point of view of a member of Congress, if they get $25 billion for a piece of infrastructure then they cannot get $25 billion for another priority of theirs. They don’t do that, not in the US, and I’ve learned not to expect any better, as have the voters. Instead of working to make $25 billion go a longer way (to put things in perspective, I expect my regional rail tunnel proposal to cost $15-20 billion, at Crossrail 2 costs), Schumer is working to make $25 billion to sound like it’s going to a bigger deal than the new Hudson tunnels actually are.
None of this is a secret. American voters have learned to expect some kind of machine-greasing and politicking, to the point of losing the ability to trust either the politicians or the agencies, even in those cases when they are right. The result is that it’s possible to stretch the truth about how necessary a piece of infrastructure is, since people would believe or disbelieve it based on prior political beliefs anyway, and there is no expectation that the politicians or public authorities making those claims will have to justify them to the public in any detail. Lying to the public becomes trivially easy in this circumstance, and thus, costs can rise indefinitely, since everyone involved can pretend the benefits will rise to match them.
I’ve been thinking about MBTA modernization recently, and realized that although the principles underlying modernization are similar throughout North America, the concrete benefits and the resulting political alliances that could push for it are very different. In New York and Chicago, commuter rail is already quite good if you’re a suburban middle-class commuter working in the CBD at regular business hours. Penn Station may not be ideally located for Midtown commuters, but the LIRR is building East Side Access to fix that; this leads to arguments such as this one, about which group of riders (or potential) riders to prioritize.
The MBTA is completely different. It does not provide adequate service even for peak-hour commuters, because the speed leaves a lot to be desired; where the LIRR runs decent if not good rolling stock, the MBTA rolling stock loses 70 seconds accelerating just to 60 mph (FLIRTs lost 24 seconds accelerating to 160 km/h). As Purple City notes in comments, electrification would be a Pareto-improvement, allowing large increases in speed even with infill stops. The discussion of whether to prioritize short-distance or long-distance service is still important, but any choice would substantially improve service to everyone over the current offering.
This means that the politics of modernization is different. In New York, Long Island commuters are the primary obstacle: modernization would replace their peak express trains with reverse-peak trains on the one-way Main Line, and crowd their trains in the outbound direction. In Boston, there aren’t enough urban riders to result in so much crowding, the speed would go up substantially, and, with the North-South Rail Link, North Side commuters would have service to the CBD and not just North Station.
The cost of such modernization consists of four main projects: the North-South Rail Link itself, complete electrification of all lines, full-length high platforms at all stations, and new rolling stock. The latter is perhaps $1.5 billion initially, corresponding to 600 cars, but in reality displaces equivalent or higher cost that has to be spent on new diesel locomotives and cars under the current operating pattern. The NSRL was pegged at $3-4 billion, but since it’s in easy geology (the ground was already cleared during the Big Dig), costs do not have to be higher than in the rest of the world, which would be closer to $2 billion for two large-diameter bores. Complete electrification is perhaps another $1.5 billion. It’s a fraction of what the state spent on the Big Dig, and not a large multiple of what it’s spending on a few thousand daily riders for South Coast Rail.
The political alliance in this case would be the exact one that would oppose modernization in New York and Chicago. This list of projects does little for the inner city, with exceptions around possible infill station sites like Allston. However, it provides much higher speeds for the suburbs. This is what’s so interesting about it. It’s not even easy to unbundle the parts that are useful to the suburbs from the parts that improve service in general, since the North-South Rail Link, which is crucial for service from the north to Boston, requires electrification, and once that’s in place, high platforms and infill stations are cheap. Whereas elsewhere, political inertia makes modernization hard, in the Boston area, once someone proposes it, I believe large chunks of the mainstream will jump on the idea.
After weeks of fraught negotiation, House of Representatives Speaker John Boehner (R-Ohio) announced that both houses of Congress had reached agreement on passing the Homeowner’s Bill of Rights (HOBOR), which uses the preemption doctrine to abolish most local planning restrictions. President Obama announced that he would sign the bill, which includes several provisions pushed by urban environmentalists. While the majority of Republicans announced their intention to vote yes and the majority of Democrats announced they would vote no, HOBOR relies on cross-bench support, as several prominent Republican lawmakers identified with the Tea Party, including presidential hopefuls Senators Ted Cruz (R-Texas) and Rand Paul (R-Kentucky), announced they would oppose the bill on the grounds of federal overreach.
Despite early environmentalist hopes that the bill would be narrowly targeted at suburban single-family zoning, HOBOR casts a wide net. It preempts any separation of residential, commercial, and industrial uses; maximum heights and floor area ratios; open space requirements; environmental restrictions including noise limits and endangered species protections; urban growth boundaries; parking minimums and maximums; single-family mandates; form-based codes; anti-McMansion ordinances and minimum lot sizes; affordable housing mandates; and setback requirements. It also requires the federal government to study privatizing federal land adjacent to urban areas and to consider the effects of growth controls on the housing market, a move that is expected to liberalize construction in the West. It does not preempt private deed restriction, despite an attempt by urban Democrats to ban it, but does ban cities from giving public incentives for it.
Boehner’s office released a statement, “The Homeowner’s Bill of Rights will prevent power grabs by special interests and by the federal government, and reduce the level of regulation in America’s cities.” Governor Greg Abbott (R-Texas), who recently proposed a similar law in Texas before Congress federalized the issue, credited Texas’s strong economy to loose zoning, and specifically praised Houston’s lack of zoning as an engine of economic growth.
On the Democratic side, New York City Mayor Bill de Blasio offered tepid support for the bill, saying that he expected the increased pace of construction to create jobs and affordable housing in the city, but added that the city would maintain its rent stabilization program. New York housing advocates were involved in obtaining necessary bipartisan support for the bill, and the city’s all-Democratic Congressional delegation is planning to vote for it, with the exceptions of Reps. Carolyn Maloney and Joseph Crowley. Crowley said in a statement that “the city’s planning laws are a cornerstone of neighborhood protection, and it’s hypocritical that the Republican Party, which claims it supports states’ rights, uses the federal government’s power so blatantly when it suits its needs.”
In San Francisco, opponents took to the street, protesting in front of the office of Senator Dianne Feinstein, the most prominent Senate Democrat to support HOBOR, with signs saying “gentrification = violence” and “the developer’s bill of rights.” A group of protesters attacked a shuttle bus ready to leave for Silicon Valley; the leaders of the main group of the protesters disclaimed the attack, and blamed agents provocateurs, but added that destruction of property is different from violent crime and that to compare the two is itself a form of violence.
On the ideological right, reactions are mixed. National Review has written in favor of the bill, while Reason continues to reject it. Joel Kotkin has editorialized that the bill “paves the way toward high-rises that Americans continue to reject.” Tea Party support is split, but largely negative; several groups have vowed to sue, connecting Democratic support with Agenda 21, the UN position paper encouraging more urbanization and restrictions on suburban sprawl. Senator Ted Cruz threatened to filibuster the bill, and openly called for a constitutional challenge. In contrast, Senator Marco Rubio (R-Florida) plans to vote for the bill. In his statement, Rubio pointed to redevelopment in Miami as “affordable housing provided by the free market without government subsidies paid by tax money” and welcomed Democratic support.
All around the nation, municipalities, business groups, homeowners, landlords, and tenants are preparing for the entry of the bill into force, which is scheduled for this September 1st. New York, San Francisco, Houston, and Chicago have all already written draft planning laws designed to comply with HOBOR restrictions, but city planners are still debating how to adapt to a situation without zoning rules to shape urban growth.
Several real estate companies are planning new skyscrapers in central business districts of multiple cities. In Washington, The Related Companies is planning a 1,330 foot tall, 4.3 million square foot tower in Farragut. In New York, Harry Macklowe, Forest City Enterprises, and Durst Organization are all expected to race to develop the tallest skyscraper in the city, in the East Midtown area; real estate analysts speaking on background expect towers exceeding 2,000 feet in pinnacle height, to overtake One World Trade Center, but closer to 1,500 feet in roof height.
Outside city centers, development is slower, but analysts expect it to accelerate in the coming years. Facebook has already announced an expansion of its campus as well as the construction of apartment buildings in its home city of Menlo Park, California, as well as Atherton and Palo Alto, to house its growing workforce. However, when asked if this trend means less demand in San Francisco and less demand for tech shuttles, a senior Facebook human resources manager speaking on condition of anonymity said, “Most of our new hires still prefer to live in San Francisco, so we may end up seeing more commuters from the city, at the expense of the East Bay.”
Ultimately, analysts agree, it is difficult to gauge the long-term effect of HOBOR this early. However, as an early indication that there would be a move to established business districts, stocks of publicly-traded companies involved in purpose-made redevelopment districts, such as the Boston Seaport and New York’s Hudson Yards, are down by an average of 3% since Boehner announced that he had secured support for the bill, whereas those of other major developers have been sharply rising, by 2-15%. But when asked whether they will scale back their plans, officials in Boston have replied negatively, and have even suggested a $2 billion Silver Line expansion to serve the Seaport.
Cairo is a dense megacity, without the infrastructure such cities require for high living standards. The city proper, according to Wikipedia, has 10 million people, living at a density approaching 20,000 per km^2, and the metro area has 20 million. With a subway system fit for a city a tenth its size, Cairo is heavily motorized for its income level, congested, and polluted. Despite high construction costs, urgent investment in public transportation is required. Ignoring this need, the current military government has just announced plans to build a new capital outside the city, eventually to house 7 million people, with all the public monuments of a planned city, at a cost of $300 billion (exchange rate dollars, not PPP), about the same as Egypt’s annual GDP. The first phase alone will be $45 billion.
Cairo itself is already suffering from neglect and disinvestment. There are 2 million cars in the city. This is enough to cause so much traffic congestion it costs Egypt 4% of its GDP. Cairo’s air pollution is legendary: pollution levels are akin to smoking a pack of cigarettes per day. At least as of 1997, lead pollution caused by cars using leaded gasoline reduced Cairene children’s IQ by 4 points. The poor transportation options have led to a housing crunch, forcing half a million people to live in a historic necropolis as squatters.
The Cairo Metro would be a solution to these problems to a large extent, but is very small relative to Cairo’s size: it has 3 lines, totaling 78 route-km. Other cities of comparable size have many hundreds of route-km of urban rail, with a handful of exceptions infamous for their sprawl (such as Los Angeles) or pollution (such as Sao Paulo). Despite its small size, the Cairo Metro gets about 1.6 billion passengers per year, by far the highest number of passengers per route-km in the world, nearly twice as high as on the legendarily overcrowded Tokyo subway. Cairo has high construction costs, but in exchange rate dollars they only amount to about $130 million per km; a fully underground expansion of the subway to 400 km, somewhat more than the length of New York’s subway lines and less than that of Beijing and Shanghai’s, would cost about $40 billion, less than the cost of the new capital’s first phase alone. This is on top of all other possible infrastructure investments Egypt should consider: sanitation, sewage, water treatment, electrification, hospitals, schools, the Suez Canal. I bring up the Metro since so many of Cairo’s pressing problems would be substantially reduced if it had the capacity to transport a large share of the city’s population.
The problem is that the Egyptian government’s first priority is not to serve the needs of the Egyptian population. It is an authoritarian military government; it is not accountable to the broad public. I bring this up, because it’s a necessary check on things I have said in the past, attacking local American governance as authoritarian. Andrew Cuomo and Chris Christie have the power to overrule useful spending bills and cause traffic jams in cities run by political opponents. Abdel Fattah al-Sisi has the power to jail political opponents without trial, and execute them by the hundreds after show trials.
Autocrats love planned cities, for two reasons. First, planned cities are monuments to their greatness, lasting long into the future. The people the autocrats trample will be forgotten. Tourists visit the Taj Mahal, and not museums commemorating the churches and temples Shah Jahan destroyed. They visit the Great Wall of China, and not any commemoration of the million-odd people who died in its construction. They visit the Old City of Jerusalem, while nobody commemorates any of the locals Herod taxed to build its monuments – even Judaism only commemorates the destruction of the Temple and the beginning of the Diaspora, generations later. Autocrats know this. Even in antiquity, they knew monuments would make them more famous. And even in modern democratic regimes, politicians like signature initiatives that have their names on them; going back to Andrew Cuomo, his proposed Queens convention center is a typical example. But Cuomo still faces some democratic checks and balances. Sisi does not.
And second, planned cities can be built in ways that enhance social control. City Metric compares the new planned capital with Naypyidaw, Burma’s capital, built in the era of military rule to replace Yangon. Purpose-built capitals can be (and are) built around the needs of the national elite, keeping the poor out of sight. They have street and building design plans that make it easy to bring in the military to quell riots: wide streets, buildings that do not touch, no central square where protests could happen. They also disallow squatters, without going through the difficult and controversial move of evicting squatters from the preexisting city. One rhetorical question I have seen on Twitter is, where will this city’s Tahrir be? An article on Cairobserver doesn’t make this exact argument, but does note that this plan disinvests in what will still remain Egypt’s largest city, and could only come about as a result of Egypt’s complete lack of democracy.
One of the bigger influences on my views of democracy is Brad DeLong and Andrei Shleifer’s paper from 1993, Princes and Merchants. I do not fully agree with the point they make, but one of the key components of it, on the spending priorities of an absolute ruler, is crucial to understanding the benefits of democracy. Per DeLong and Shleifer, absolutism chokes economic growth, since the absolute ruler will overtax the economy to maximize revenue. One may ask if actually, hereditary rulers would want to stimulate more economic growth in order to bequeath a stronger kingdom to their heirs. DeLong and Shleifer answer that no: even with clear rules of inheritance, succession wars are so common that kings have to constantly be on the guard against rebellion to make sure their heirs get to inherit anything.
For Sisi, it is perfectly rational to spend so much money building a capital city that would make an uprising against him less likely. The money is not going to come from his pocket, but from the pockets of people he need not care about too much – the Egyptian people. The personal benefits to Sisi are invaluable: Sisi’s two predecessors, Mohamed Morsi and Hosni Mubarak, were both overthrown and immediately charged with crimes, for which they were guilty (under Sisi’s influence, Mubarak was exonerated from most). Why not remove himself and the apparatus of the Egyptian state from the city where they were overthrown?
When I talk of infrastructure democracy in democratic first-world countries, I complain about (much) smaller versions of this exercise. One could reason with a democratic Egyptian government that there are better uses of the money in Cairo itself. One cannot reason this way with a military government. The same is true of the soft authoritarianism found in governments with a democratic deficit, from the European Commission to local American governments. Their power is ultimately limited by other layers of government, which are more transparent, and they are incapable of killing off political opponents, but they still do not have to listen to the people they impact, leading to decisions that are at times obviously ridiculous. Egypt’s new capital is this autocracy, taken to its logical end. A dictator, of the kind who the infrastructurists might praise as someone who can cut through the red tape and gets things done, is spending the country’s annual GDP on a plan to disinvest in the capital and build a monument to himself and his regime from scratch.
Last week, Bill de Blasio proposed a citywide ferry system in his otherwise perfectly boilerplate State of the City speech. Ferries, as Ben Kabak notes, are a tried and failed solution in New York, with a $30 per passenger subsidy on the ferry to the Rockaways, one of the neighborhoods mentioned in de Blasio’s speech. At the same time, some ferry routes do attract large numbers of passengers, including the Staten Island Ferry and SeaBus; in addition, MBTA Boat attracts fewer passengers than SeaBus, but achieves better cost recovery than the MBTA’s land transportation services. The purpose of this post is to explain which urban geographies could be well-served by ferries, and why New York could not.
Until the invention of the railroad, the fastest, cheapest, and most reliable form of transportation was the boat. Inland transportation of goods was by canal whenever possible. Overland transportation was so expensive that, as noted by Andrew Odlyzko, the cost of coal would double twelve miles away from the mine (see p. 14). As a result, cities were founded on shorelines and in river estuaries, and shrank if their rivers silted.
Railroads inverted this equation. Even in the 1830s, trains achieved higher speeds than ferries do today: the London and Birmingham averaged 31 km/h at opening, whereas SeaBus, which uses fast catamarans, averages at most 20 km/h. They could climb grades without resorting to locks and derailed much less often than boats sank; and, with the world still in the tail end of the Little Ice Age, the railroads did not freeze in winter. In this situation, a seaside location is no longer an advantage. At coastal locations, railroads have to cross more rivers, as did roads before; the current route of the Northeast Corridor in Connecticut was not the first but the third rail connection to be built between New York and Boston, after the Long Island Railroad (with ferry connections at both ends) and the inland Hartford and New Haven Railroad route.
The 19th century was a period of fast population growth in the industrialized world, especially the US, and fast urbanization. The industrial cities were then sited based on the optimal locations of a railroad network and not that of a shipping network. Birmingham and Manchester were already the largest cities in the UK outside of London, but the first railroad was, not coincidentally, built precisely to give Manchester port access without relying on the Manchester Ship Canal. In the US, we can see this in action, especially in New England: Boston has always been New England’s largest city, but many other early-settled cities – Salem, Newport, Plymouth, Provincetown, Portsmouth – declined, and now New England’s second cities include not just coastal New Haven and Providence but also inland Hartford, Worcester, and Nashua-Manchester.
In some areas of Long Island and New England, we can see towns with dual centers: an older coastal center, and a newer inland center, near the train station or a highway interchange. As Long Island had extensive suburban growth in the postwar era, the inland centers there are usually the larger ones, whereas in Massachusetts and Rhode Island, the coastal centers are usually larger.
Boston’s ferries serve these coastal centers. The Greenbush Line is locally infamous for its low ridership, about 3,000 per weekday in each direction. And yet, the ferries serving Hingham are fairly well-patronized: about 3,500 weekday passengers in both directions. (Both figures are from the 2014 Blue Book.) Now, the trains still carry nearly twice as many passengers as the ferries, but, relatively speaking, the ferries are doing quite well, since that part of the South Shore was settled before the railroad came, so the ferry serves passengers better than the trains do.
The other issue is which mode of transportation offers the most direct route. On the South Shore, the ferries go in a straighter line than the trains, which have to detour to remain on land. The Staten Island Ferry goes in a straight line, whereas roads and trains take big detours, especially for passengers leaving from St. George and not from near the bridges to Brooklyn and New Jersey. SeaBus, likewise, takes a direct route.
The significant fact for the Staten Island Ferry and SeaBus is that there economic centers of Staten Island and North Vancouver are right next to the ferry docks, coming from the fact that those areas were settled as suburban regions connected to the center by ferry. Because constructing a road or rail link across the New York Harbor or Burrard Inlet is difficult, those ferries were never replaced by fixed links; this is in contrast with Jersey City, which was also connected to New York by multiple ferry lines, but had enough demand a hundred years ago to fill the Hudson Tubes and later the Holland Tunnel with commuters.
None of these histories and geographies applies to the routes proposed by de Blasio and other ferry supporters. A Rockaway ferry has to detour around all of Brooklyn to reach Manhattan. The various waterfront ferries between Manhattan and Queens don’t really serve neighborhood centers, which are located around subway stations. Subway stations, like railroads, dislike coastal locations, not because of construction difficulties but because half their walk sheds would be underwater. Even Red Hook, which is cut off from the rest of the city by the Brooklyn-Queens Expressway and has no subway service, is not centered around the waterfront: the projects are several blocks inland, and Ikea Dock is facing the wrong way, south instead of west.
New York’s commercial centers, likewise, are inland. Why would a Midtown office developer waste any time building a skyscraper on the East River when the easternmost subway stations in Midtown are at Lexington Avenue? Thus the high-rise towers that line First Avenue are more residential than commercial, making them poor candidates for ferry connections. Lower Manhattan is better-connected to the water, but it is served by a large number of subway lines in all directions, none of which is at capacity since Midtown is the bigger office cluster. It’s also far from the waterfront condo clusters de Blasio wants to serve with ferries.
Even service between Staten Island and Manhattan shouldn’t be a ferry. A rail tunnel would offer a large improvement in trip times: about 8 minutes or even less, compared with 25 by ferry, and one to two transfers less than today. The question is entirely whether the costs could be contained enough to be in line with a realistic demand projection. Of course this is best realized as part of a regionwide commuter rail modernization plan, but even without such a plan, a connection to the 1 train would substantially reduce Staten Island’s commute time, which, at least last decade, was the longest of all US counties.
And this is an origin-destination pair that, given current infrastructure, is actually well-served by ferry, unlike the routes that de Blasio proposed. Ben tried to propose a better way of running ferries in New York, but with no real anchors to connect to, Ben’s proposal is a polite way of what I would phrase as “just don’t.”
Unlike Cuomo, de Blasio is not inherently hostile to public transit. However, he does not particularly care about transit, either. In this view, what he says about ferries is of limited consequence; the amounts of money in question are trivial. He’s not like Bloomberg, who directed $2 billion of city money to the 7 extension ahead of more deserving subway investments. Perhaps it’s wiser to focus on his plan to deck over Sunnyside Yards, or, more specifically, his invocation of massive projects including Stuyvesant Town, Coop City, and Starrett City – precisely the models that a Sunnyside decking should avoid.
However, there’s a good reason to focus on this, unimportant as it is. Cuomo’s failings are characteristic of an autocrat who is hostile to transit. De Blasio’s are characteristic of an autocrat who is indifferent. Although there is a long-term transit plan in New York, centered around completing Second Avenue Subway, this is not what de Blasio talked about, at all. Instead, he went for projects that can be done during his first term: off-board fare collection on a few more bus routes (“Select Bus Service,” complete with the pretense that they are bus rapid transit), and ferries. He won’t just follow an agenda set by others a long time ago: he has to remind people he exists on this issue as on his signature issues, but, as he doesn’t actually care about it, he will propose distractions that would at best do little (Select Bus Service) and at worst would be complete wastes of money (the ferries).
In a democracy, good transit advocates can push themselves into key positions at the ministry of transport, or its equivalent, such as a parliamentary committee on transportation (including the Congressional one, even). The same is true for people who care about other aspects of government spending and policy: housing, health care, education, defense, social welfare, policing. In an autocracy, such as the strong mayor system, it boils down to asking the autocrat to care and to take the right position. But the autocrat is just one person, and cannot pay equal attention to everything. Hence, ferries and Select Bus Service, in lieu of real transit investment.