Car-Free and Pollution-Reduced Tourism for Portland, Maine

Cars emit greenhouse gases responsible for anthropogenic climate change as well as particulate matter that can be harmful to human health (Nieuwenhuijsen, 2016). Traffic congestion, in particular, contributes to unnecessary emissions and occurs in densely populated areas of the city where traffic movement is slow (Richmond-Bryant, 2009). For these reasons, cities across the world have implemented policies and programs aimed at reducing car travel within city limits (Pogačar, 2021). Cities like Oslo, Paris, Brussels, and Hamburg, specifically, are restricting car travel in their city centers (Nieuwenhuijsen, 2016). Each city’s method varies from completely banning cars for days at a time to shutting down specific streets for only pedestrian and bicycle use (Nieuwenhuijsen, 2016). Portland, Maine is significantly smaller than each of these cities, but it has a similar opportunity for managing its high summer tourist volume in the downtown area as well as the car emissions resulting from increased car congestion. Currently, Portland’s Plan for 2030 does not incorporate limiting traffic in highly congested areas (Portland’s Plan 2030). This report will address the reasoning and solutions for car-limiting strategies from studies abroad to the downtown Portland area, specifically the traffic inside the Middle, Union, Pearl, and Commercial St parameter (Figure 5). This recommendation will hopefully reduce car congestion, improve walkability, and decrease greenhouse gas emissions and air pollution in the area. 

Introduction

In June 2017, the City Council of Portland, Maine unanimously voted to adopt Portland’s Plan for 2030: the Department of Planning and Urban Development’s comprehensive plan for the future of Portland (Portland’s Plan 2030). The plan states six categories of intention in its opening vision statement: a well connected, equitable, sustainable, authentically historical, and safe Portland (Portland’s Plan 2030). Outlined in their plan to make Portland more connected and sustainable, the Department of Planning and Urban Development proposed extensions of pedestrian trails and bike lanes among other green infrastructure (Figure 1). Specifically, under the sixth goal for a healthy environment, the document states the plan to “encourage fossil fuel-free transport through support for electric vehicles, electric public transit, dedicated bicycle lanes, and vehicle exclusion zones,” (Portland’s Plan 2030). This goal is just one dimension of a larger effort to eliminate CO2 emissions in the next 30 years, (Portland’s Plan 2030). While the Department of Planning and Urban Development created a design for an extended system of bike and pedestrian pathways (Figure 1), they did not include any policy suggestions for “vehicle exclusion zones,” (Portland’s Plan 2030). In fact, the characteristics of the proposed bike and trail network imply a priority to motor vehicle transportation through Portland as every trail is alongside a motor vehicle-prioritized street (Figure 1). This paper will outline the reasons why the Department of Planning and Urban Development should incorporate a car-free policy plan and design for the popular tourist destination of downtown Portland’s Old Port (Figure 2) for the benefit of the environment and human health. 

The historic downtown of Portland, Maine, nicknamed the Old Port, is a popular tourist destination of New England (Figure 2). With waterfront views, 19th-century brick buildings, and cobblestone streets, it’s no wonder that Portland attracts tourists from across the country and the world throughout the summer months, especially. In the summer of 2021, the Maine Office of Tourism reported that over 10 million people traveled to Maine between May and August (Mcguire, 2021). This was a three million person increase from 2020 and a half a million person increase from the pre-pandemic summer of 2019 (Mcguire, 2021). More importantly, many, if not all, of these visitors stopped through Portland to enjoy the downtown restaurants and boutiques concentrated in Portland’s Old Port, (Mcguire, 2021). While this was good news for local businesses who depend on tourism for revenue, especially after the 2020 pandemic shutdown, a continued increase in tourism in future years could pose serious environmental and public health risks if it hasn’t already. 

During the COVID-19 Pandemic, the Portland City Council approved an outdoor permitting program that closed traffic on select streets in the downtown area. From April 5th, 2020 to November 1st, 2020, sections of the Old Port were limited to pedestrian and bicycle access only. Emergency vehicles and commercial vehicles before 11 am were the only exceptions to the rule (Mannino, 2021). The goals of this effort were to both support local businesses while maintaining public health and safety protocols during the global pandemic (Mannino, 2021). In total, the city issued nearly 200 outdoor dining permits throughout the summer (Mannino, 2021). In fact, the program was so successful that it was ultimately extended through winter until May 10th, 2021 (Mannino, 2021). Despite the success of this program, the streets reopened for the summer of 2021 which coincided with the largest tourist influx in recorded history (Gray, 2021). Not only did this decision endanger public health by attracting idling vehicles and decrease the potential for social distancing, but there is reason to believe the amount of traffic that accompanied the tourist boom and opened streets also had a negative impact on air pollution and Portland’s emissions. 

Tourism not only brings business but also traffic congestion. Throughout the summer of 2021, traffic along the streets of the Old Port where tourism is most concentrated because of the historic characteristics and popular shops worsened (Figure 3). Despite this area being moderately walkable with sidewalks and a high density of shops and entertainment, the ability of traffic to go through the middle of the city allowed for a constant stream of slow moving through-traffic throughout the central streets. This is an environmental and public health concern for Portland’s residents and visitors. In an area like the Old Port where pedestrian levels are high, vehicles often have to stop to wait for pedestrians to cross or move slower than the speed limit because of fear of hitting a pedestrian. Stopped vehicles with a running engine, also referred to as idling vehicles, emit carbon dioxide (CO2), methane (CH4), nitrous oxide (N2O) and particulate matter (PM) (US EPA, 2016). These chemicals are potent greenhouse gases which actively contribute to anthropogenic climate change on a global scale but also have the potential to contribute to local air pollution when in a concentrated urban environment like the Old Port (US EPA, 2016). Further, vehicle pollution from idling combustion can aggravate asthma, allergies, and respiratory and cardiovascular disease (NCEQ). Idling vehicles also are known to contribute to unnecessary noise pollution and increased local temperature (see Figure 3 for the GIS mapping of the urban heat island effect in Portland) (NCEQ). Figure 4 shows the average daily particulate matter throughout 2021 calculated by the Maine Department of Environmental Protection which clearly spiked in the summer tourist months of May through August (Figure 4). Not only can this lead to increased health risk for Portland residents but also its visitors. It is also possible that vehicle presence in this area could be negatively impacting the business of the Old Port’s shops as social distancing is limited by sidewalk width and the area is not safe for families with children. 

Abroad Policy Examples

Over the past decade, European cities have set an example for developing environmentally conscious policy. This extends to policies and programs that aim to reduce car congestion in cities and promote an overall shift in transportation methods away from personal vehicles and towards walking and biking as a larger effort to reduce greenhouse gas emissions and pollution. Oslo, Norway, Paris, France, Brussels, Belgium, and Hamburg, Germany are all cities that have taken action to limit car traffic in their city-centers. Each city offers a diverse array of approaches to tackling the issue of car-dependency in cities and collectively are useful references for the implementation of similar approaches in Portland’s Old Port. 

Oslo, Norway has taken a relatively gradual approach to achieving a car-free city center. In October 2015, Oslo’s government attempted to call for a full ban on cars because the majority of residents in the city center didn’t drive (Nieuwenhuijsen, 2016). Oslo often experiences weather inversions that trap air pollution at ground levels meaning limiting car traffic is a necessary measure to reduce public health risk and climate change contribution (Welle, 2018). It was ultimately the business owners who objected to this approach and Oslo responded with a more gradual transition of limiting parking spots within the city center (Nieuwenhuijsen, 2016). In 2019, the city finished removing more than seven-hundred parking spots and banning cars completely from some streets (Nieuwenhuijsen, 2016). A few parking lots remain, but Oslo intends to pass further zoning laws prioritizing pedestrian and bicycle access within these areas until the entire city-center is a complete pedestrian zone (Nieuwenhuijsen, 2016). Examples of such laws include implementing a car-free zone within the city’s central ring road, more bike lanes, and rush-hour congestion charging (Nieuwenhuijsen, 2016).

Paris, France has taken one of the most extensive approaches to banning car traffic in its city-center. Most recently, in May of 2021, Parisian Mayor Anne Hidalgo proposed a plan to officially shut out all through-traffic in Paris’s city center while continuing to allow motor traffic access along the periphery (France 24, 2021). While residents, vehicles for the disabled, taxis, professionals, and shop owners will be allowed access to the city-center, the rest of traffic will be rerouted to the periphery streets (France 24, 2021). Similar to Oslo, Paris named their harmful air pollution and goal of long term CO2 emission reduction as determining factors for why they support strong car-restriction policy (Memmott, 2014). 

Brussels, Belgium began its process of moving away from car-heavy transportation by promoting car-free Sundays. The city has also stressed its intention to create more pedestrian zones along Boulevards like the Anspach which began in 2015 (Neslen, 2018). In addition to banning diesel cars built prior to 1998, which are known to contribute to particulate matter pollution more than gasoline cars, the city announced that public transport would be free on days with abnormally high air pollution (Neslen, 2018). 

Beginning in 2013, Hamburg, Germany set a standard for the gradual transformation of its city from a car-dependent system to a pedestrian and cyclist paradise (Nieuwenhuijsen, 2016). This plan was established in conjunction with Hamburg’s larger goal of achieving 80% reduction in greenhouse gas emissions in the next three decades (Braw, 2013). In addition to a larger goal of increased investment in green infrastructure, the first dimension of this particular “Green System Plan” was to completely redesign the central promenade called the Jungfernstieg. With this focal point established, the city of Hamburg began the development of a larger plan to create a green transportation system across 40% of its city (Braw, 2013). The green system would link major parks, playgrounds, community gardens, and cemeteries along pedestrian and bicycle paths, “green paths,” (Nieuwenhuijsen, 2016). The ultimate goal of the city being the creation of a web of pedestrian pathways that will ultimately allow the city to be entirely explored by bike or foot (Braw, 2013). This green network is still in the process of construction, but has already influenced a shift in transportation methods away from personal vehicles and towards walking and biking (Nieuwenhuijsen, 2016). Not to mention, the conversion of impervious surfaces like concrete to green space has already improved the resilience of the city against storm surges which is one of the city’s main climate change concerns (Braw, 2016). 

Each of these cities serve as examples of the diverse methods by which Portland can take action now in order to prevent worsening pollution conditions and car congestion in the future. Many of these cities are much larger than Portland, but this could mean that their policy is even harder to implement than in a place like the Old Port where pedestrian space is limited and through-traffic barely saves time for the commuter especially when considering the levels of pedestrians on the street. 

My Recommendation

Given the consistent increase in tourism over the past few summers in Portland, and the subsequent congestion issues along the streets of the Old Port, I recommend that the Department of Planning and Urban Development incorporate a policy recommendation and urban design plan for the elimination of through-traffic within the streets outlined by the perimeter of Middle, Union, Commercial, and Pearl Street during peak tourist season (May through August) for the benefit of public health and the environment (see Figure 5 for a diagram of the proposed section of the Old Port pedestrian zone). The majority of this policy can copy the closures of the COVID-19 outdoor permit program which allowed commercial vehicles access before 11 am and emergency vehicles access always. This is my immediate recommendation to be implemented before the summer of 2022 as tourism will likely spike again, possibly reaching another record high. 

As for the next decade, I recommend that the Department of Planning and Urban Development consider the potential for the Old Port to become a center for a larger green pathway network like the Jungfernstieg in Hamburg, Germany. This could have the added benefit of further increasing permeable surfaces and subsequently decreasing runoff into Portland’s periphery and flood zone while facilitating a larger transition away from personal vehicle dependence and toward pedestrian transport. Long-term effects could be improving air quality while also promoting business along the green pathway where pedestrian foot traffic would ultimately increase due to the quality of walkability. 

Possible Equity Concerns

One area of equity concern arises from the unstudied potential that rerouting traffic poses to lower-income and minority residents. Cities across America have a history of rerouting harmful traffic through areas where lower-income and people of color live and contributing to adverse health effects among these populations. Harlem, New York City is a famous example. While Portland is 84.6% white, the majority of immigrants come from Eastern Africa, China, the Philippines, Somalia, and Iraq and make up 4.6% of the population of Portland (Immigration Research Library, 2018). According to Portland’s Plan 2030, “Many new immigrants settled in the Parkside and Munjoy Hill neighborhoods,” (Portland’s Plan 2030).  Munjoy and Parkside are both areas on the periphery of Portland’s downtown meaning rerouting through-traffic could have a negative impact on their air quality. That being said, this is not a certain consequence of car-free zones and still requires further evaluation and sufficient attention as to avoid exacerbating socioeconomic divides (Nieuwenhuijsen, 2016).

The green pathway could be an option to mitigate the potential negative consequences of rerouting traffic outside of the Old Port. Hamburg, Germany noticed a dramatic shift in preferred method of transportation once they began construction on their green pathway network. A similar pathway in Portland could connect to periphery parks like the Eastern Prom, Western Prom, and the Parkside area, thus contributing to green space in the areas where immigrants currently live. Regardless of the method by which this issue of equity is ultimately addressed, it requires substantial consideration and action if this recommendation is implemented. 

Conclusion

For the benefit of the environment, public health, and Portland’s goals for 2030, the Department of Planning and Urban Development should consider my proposal to eliminate through-traffic in Portland’s Old Port. Portland is a growing city and must meet this growth with calculated and mature policy that addresses the concerns of the next century for the sake of its residents and visitors. Thank you for your consideration. 

Sincerely, 

Lily Friedland

Columbia University Class of 2022

Aspiring Urban Planner and Portland, ME resident

Figures

Figure 1: Existing and planned transportation map from Portland’s Plan 2030. Planned bike and pedestrian pathways are highlighted in maroon.

Figure 2: Portland, Maine land use map from the City of Portland Maine GIS (Portland Maine GIS). The area typically called the Old Port is circled in white and characterized by zoning label B3 - Downtown Business.

Figure 3: Annual Average Daily Traffic map from Portland’s Plan 2030. With increased tourism in 2021, it can be reasonably assumed that Old Port traffic, which is already worse than its surroundings, was even more congested than the average.

Figure 4: GIS mapping of the urban heat island effect (The Trust for Public Land, 2019) with added public roads and Old Port circled in white, (MaineDOT Public Road, 2019).

Figure 5: Particle pollution data is the midnight to midnight 24-hour average for each day. Please read the material on the first worksheet in the file for important information to keep in mind when viewing the data (Maine Department of Environmental Protection, 2021).

Figure 6: Self-made diagram of the necessary streets which should be closed to through-traffic based on my recommendation (Google Maps Traffic Data). The streets outlined in red are those that should be closed to traffic and the black is the perimeter of the streets mentioned in the recommendation.

References

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City of Portland—Portland’s Plan 2030—Page 1—Created with Publitas.com. (n.d.). Retrieved October 13, 2021, from https://view.publitas.com/city-of-portland/portlands-plan-2030/page/1

Historical Data, Air Quality Forecast, Maine Department of Environmental Protection. (n.d.). Retrieved December 11, 2021, from https://www.maine.gov/dep/air/ozone/view_data.html

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Mayor Anne Hidalgo steps up plans to ban most cars from Paris city centre. (2021, May 14). France 24. https://www.france24.com/en/france/20210514-paris-mayor-steps-up-green-city-goals-with-latest-car-ban-plan

Mcguire, P. (n.d.). Tourism surged in Maine this summer after 2020 slowdown—Portland Press Herald. Retrieved December 10, 2021, from https://www.pressherald.com/2021/10/29/summer-tourism-surges-in-maine-after-2020-slowdown/

Memmott, M. (2014, March 17). Paris Ends “Odd Or Even” Limit On Cars After One Day. NPR. https://www.npr.org/sections/thetwo-way/2014/03/17/290849704/to-clear-its-air-paris-tests-odd-or-even-driving-days

Neslen. (2018). Brussels to make public transport free on high air pollution days | Air pollution | The Guardian. https://www.theguardian.com/environment/2018/feb/26/brussels-to-make-public-transport-free-on-high-air-pollution-days

New Americans in Portland, Maine | Immigration Research Library. (n.d.). Retrieved December 11, 2021, from https://www.immigrationresearch.org/node/2302

Nieuwenhuijsen, M. J., & Khreis, H. (2016). Car free cities: Pathway to healthy urban living. Environment International, 94, 251–262. https://doi.org/10.1016/j.envint.2016.05.032

Paris Ends “Odd Or Even” Limit On Cars After One Day: The Two-Way: NPR. (n.d.). Retrieved December 11, 2021, from https://www.npr.org/sections/thetwo-way/2014/03/17/290849704/to-clear-its-air-paris-tests-odd-or-even-driving-days

Pogačar, K., & Šenk, P. (2021). Sustainable Transformation of City Streets – Towards a Holistic Approach. In A. Rotaru (Ed.), Critical Thinking in the Sustainable Rehabilitation and Risk Management of the Built Environment (pp. 273–282). Springer International Publishing. https://doi.org/10.1007/978-3-030-61118-7_24

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