Electric Buses Clean Transportation for Healthier Neighborhoods and Cleaner Air - Education Fund - NCPIRG
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Electric Buses
Clean Transportation for Healthier
Neighborhoods and Cleaner Air
Education Fund RESEARCH & POLICY CENTER
Electric Buses
Clean Transportation for Healthier
Neighborhoods and Cleaner Air
Education Fund RESEARCH & POLICY CENTER
Alana Miller and Hye-Jin Kim, Frontier Group
Jeffrey Robinson and Matthew Casale, U.S. PIRG Education Fund
May 2018
Acknowledgments The authors wish to thank Kelly Blynn, Master of Science in Transportation and Master in City Planning, Massachusetts Institute of Technology; Kevin Brubaker, Deputy Director, Environmental Law & Policy Center; Morgan Ellis, Associate Director Clean Transpor- tation for All Campaign, Sierra Club; Michelle Kinman, Charge Ahead California Cam- paign Director, Environment California; Mark LeBel, Staff Attorney, Acadia Center; Su- san Mudd, Senior Policy Advocate, Environmental Law & Policy Center and Will Toor, Transportation Program Director, Southwest Energy Efficiency Project for their review of drafts of this document, as well as their insights and suggestions. Thanks also to Tony Dutzik and Rachel J. Cross of Frontier Group for editorial support. The authors bear responsibility for any factual errors. Policy recommendations are those of NCPIRG Education Fund and Environment North Carolina Research & Policy Cen- ter. The views expressed in this report are those of the authors and do not necessarily reflect the views of our funders or those who provided review. 2018, NCPIRG Education Fund and Environment North Carolina Research & Policy Center. Some Rights Reserved. This work is licensed under a Creative Commons Attribu- tion 4.0 International license. To view the terms of this license, visit http://creativecom- mons.org/licenses/by/4.0. With public debate around important issues often dominated by special interests pursu- ing their own narrow agendas, NCPIRG Education Fund offers an independent voice that works on behalf of the public interest. NCPIRG Education Fund, a 501(c)(3) or- ganization, works to protect consumers and promote good government. We investigate problems, craft solutions, educate the public, and offer North Carolinians meaningful op- portunities for civic participation. For more information, please visit ncpirgedfund.org. The Environment North Carolina Research & Policy Center is a 501(c)(3) organization. We are dedicated to protecting North Carolina’s air, water and open spaces. We investigate prob- lems, craft solutions, educate the public and decision-makers, and help North Carolinians make their voices heard in local, state and national debates over the quality of our environment and our lives. For more information, please visit www.environmentnorthcarolinacenter.org. Frontier Group provides information and ideas to help citizens build a cleaner, healthier and more democratic America. We address issues that will define our nation’s course in the 21st century – from fracking to solar energy, global warming to transportation, clean water to clean elections. Our experts and writers deliver timely research and analysis that is accessible to the public, applying insights gleaned from a variety of disciplines to arrive at new ideas for solving pressing problems. For more information about Frontier Group, please visit www.frontiergroup.org. Cover: Children - U.S. Air Force photo by Senior Airman Marissa Tucker; Pollution - Rockford’s New Country Q98.5 via YouTube (with permission); Electric bus - Flickr user SounderBruce, CC BY-SA 2.0. Layout: Alec Meltzer/meltzerdesign.net
Table of Contents Executive Summary 1 Introduction 4 Pollution from Transportation Threatens Public Health 6 Children Are Especially Vulnerable to Exhaust Pollution 8 Dirty Buses Expose Children and Neighborhoods to Dangerous Pollution 8 Most of America’s Buses Still Run on Dirty Fuels 11 School Buses 11 Transit Buses 12 Clean, All-Electric Buses Make Economic Sense for America’s Schools and Cities 14 Long-Term Affordability 14 Increasing Range 19 Improved Reliability 20 Major Cities and States Take the Lead on Bus Electrification 21 Opportunities to Shift to Electric Buses 23 Recommendations 27 Methodology 28 Appendix A: Bus Fleets of America’s 50 Largest Transit Agencies (by Number of Active Buses), 2016 30 Appendix B: Proposed Electric Bus Plans for Some of America’s Largest Transit Agencies 34 Notes 35
Executive Summary
B
uses play a key role in in our nation’s conditions like asthma. The negative ef-
transportation system, carrying mil- fects are especially pronounced in children.
lions of children daily to and from
school and moving millions of Ameri- • Diesel exhaust is internationally rec-
cans each day around our cities. Buses ognized as a cancer-causing agent
reduce the number of individual cars on and classified as a likely carcinogen by
our roads, make our communities more the U.S. Environmental Protection
livable and sustainable, and provide trans- Agency.3
portation options for people of all ages
and abilities. • In a study of 61 million people in 2015,
Yet, the majority of America’s buses researchers found that exposure to die-
remain dirty – burning fossil fuels like sel soot and ground-level ozone created
diesel that put the health of our children by diesel exhaust was linked to high-
and communities at risk and contribute to er rates of mortality.4
global warming:
Diesel exhaust from buses poses a par-
• Approximately 95 percent of America’s ticular risk to health. Buses primarily
school buses, carrying some of the most travel where there are lots of people, in-
vulnerable passengers, run on diesel.1 cluding in the more densely-crowded ar-
eas of cities, on the busiest roads, and near
• More than 60 percent of the nation’s schools. They also circulate continuously
nearly 70,000 transit buses run on die- and make many trips, and therefore risk
sel, and another 18 percent run on natu- exposing many people to emissions.
ral gas, while just 0.2 percent of buses The good news is that America can
are all-electric.2 clean up its buses by making them electric.
All-electric buses are here, and they’re
Numerous studies have shown that cleaner, healthier and often cheaper
inhaling diesel exhaust can cause re- for transit agencies, school districts and
spiratory diseases and worsen existing bus contractors to run in the long-term.
Executive Summary 1To clear our air and protect our health, • Each electric school bus can save dis-
policymakers should accelerate the re- tricts nearly $2,000 a year in fuel and
placement of diesel and other fossil fuel- $4,400 a year in reduced maintenance
powered buses with clean, electric buses. costs, saving tens of thousands of dollars
over the lifetime of a bus.7
• Replacing all of America’s school buses
with electric buses could avoid an aver- • The Chicago Transit Authority esti-
age of 5.3 million tons of greenhouse mates that each electric transit bus in its
gas emissions each year.5 fleet saves the city $25,000 in fuel costs
every year.8
• Replacing all of the diesel-powered
transit buses with electric buses in the Cities in the United States and
United States could save more than 2 around the world are taking the lead,
million tons of greenhouse gas emis- committing to transition to cleaner,
sions each year.6 quieter and more efficient electric bus
fleets.
Dramatic declines in battery costs
and improvements in performance, • The idea of all-electric school buses is
including expanded driving range, spreading across the country and pilot
have made electric buses a viable al- programs are now underway in states
ternative to diesel-powered and other including California, Massachusetts and
fossil fuel buses. Minnesota.
Figure ES-1. Estimated Annual Operating Costs of Transit Buses, by Fuel Type9
$80,000
Annual Operating Cost -
$60,000
Fuel & Maintenance
$40,000
$20,000
$0
Diesel Natural Gas Diesel Hybrid Electric
2 Electric Buses• The mayors of Los Angeles and Se- • Facilitate the installation of charging in-
attle have joined a pact with 10 other frastructure through programs that help
mayors around the world to purchase cover the costs.
only electric transit buses after 2025.10
Los Angeles County’s transit agency, • Encourage utilities to design their rates
Metro, committed to go all-electric in ways that support electric buses.
by 2030, while Shenzhen, China, tran-
sitioned its 16,000 buses to electric in • Consider low-cost financing programs
December 2017.11 that help agencies, districts and bus con-
tractors leverage other sources of fund-
With reduced operating costs and no ing, like Volkswagen settlement money.
tailpipe emissions, all-electric buses
and charging stations can be a smart • Identify other ways to ensure successful
infrastructure investment for school electrification of buses, including tech-
districts and transit providers across the nical assistance and research, as well
country. as the publication of data and lessons
Electrifying buses is also an impor- learned.
tant first step towards broader adop-
tion of heavy-duty electric vehicles, Transit agencies, school districts and
like trucks. While buses themselves ac- bus contractors should:
count for a relatively small percentage of
vehicle emissions, heavy duty vehicles as a • Replace buses powered by fossil fuels
whole are responsible for over a quarter of with the cleanest possible technology
climate emissions from on-road transpor- for the health of future generations: all-
tation in the U.S.12 electric.
To support more widespread adoption,
state governments should: • Consider adopting goals to repower the
entire fleet with electric buses over one
• Allocate settlement money from Volk- replacement cycle.
swagen’s “Dieselgate” settlement to
subsidize the purchase of electric school • Ask state governments and beneficiary
and transit buses, as well as charging in- agencies to dedicate funds from the
frastructure. Volkswagen settlement to electric buses.
• Create incentive programs and grants • Prepare for future adoption of electric
for transit agencies, school districts and buses by running electrical conduits
bus contractors to help finance the up- necessary for charging infrastructure
front cost of electric buses and charging during any new construction or recon-
infrastructure. struction of depots and parking lots.
Executive Summary 3Introduction
B
uses are the workhorses of Ameri- emissions and 4.2 billion gallons of gaso-
ca’s transportation system, carrying line each year.17
millions of Americans of all ages to Energy savings and reduced emissions
school, work, shopping, recreation and of greenhouse gases aren’t the only ben-
other places they need to go. Buses travel efits of buses. Buses provide a critical form
on city streets and rural roads, serving ev- of transportation to those who cannot or
ery kind of community – and delivering do not wish to drive – including children,
benefits across the country. the elderly and disabled people. Reli-
Though the humble school bus isn’t ance on buses and other forms of public
the first thing that pops to mind when transportation can free households of the
it comes to public transit, the quintes- burden of owning a car (or owning an ad-
sential yellow bus is what half of all ditional car), saving thousands of dollars
American kids take to public school each each year.
day.13 With 480,000 school buses carry- Buses are also safe. Traditional school
ing up to 26 million children to school buses are designed with high-backed
each day, school buses are the largest cushioned seats, crush-resistant roofs,
form of mass transportation in the coun- and rollover protection to keep children
try.14 The American School Bus Council from major harm.18 According to the
found that in 2010, school buses saved National Highway Traffic Safety Admin-
parents $6 billion in fuel costs and pre- istration (NHTSA), riding a school bus
vented 2.3 billion gallons of gasoline to school is 70 times safer than traveling
from being burned.15 by car.19 Transit buses are also safe, with
Trips on transit buses account for nearly much lower crash rates and fatality rates
half of all public transit use in the U.S. – 60 times lower than cars, per million miles
more than 3.5 billion rides were taken in traveled.20
the first three quarters of 2017, according However, buses have traditionally had a
to the American Public Transportation major flaw that reduces the benefits they
Association.16 Public transit saves an es- deliver to Americans and our communities:
timated 37 million metric tons of carbon pollution. Numerous scientific studies have
4 Electric Busesshown that diesel exhaust isn’t just smelly, In this report, we review the exciting
but is also dangerous, with links to lung advances in electric bus technology, high-
cancer, asthma and even autism.21 Children light the cities that are pioneering the use
– including children riding on school bus- of electric buses in schools and transit
es – are among the most vulnerable to the agencies, and demonstrate why the tran-
health effects of diesel pollution. sition to electric buses is needed to pro-
As research began to pile up on the dan- tect public health and reduce emissions of
gers of diesel soot, government and indus- the pollutants that cause global warming.
try worked together to make diesel buses Some transit and school buses are public-
cleaner and introduce newer fuels that ly owned and operated, while others are
produce less tailpipe pollution. In spite of owned or operated by private contractors.
these efforts, more than half of America’s Public policy can play an important role
transit buses continue to run on diesel in moving both of these models toward
fuel.22 And though less-polluting models electric buses.
of diesel buses were a welcome improve- By transitioning from dirty fossil fuels
ment, technology now exists that can to clean electricity, the humble bus can
dramatically reduce the remaining health fully deliver on its potential to offer clean,
threats posed by diesel buses: the all-elec- accessible, convenient and low-carbon
tric, battery-powered bus. transportation across America.
Introduction 5Pollution from Transportation
Threatens Public Health
T
ransportation produces more green- contribute to a variety of known health
house gas emissions than any other impacts, including:
sector in the United States and die- Mortality risk: A 2017 study in the New
sel buses are highly polluting vehicles. England Journal of Medicine estimated the
For example, in California, transportation levels of air pollution experienced by 61
contributes nearly 40 percent of the state’s million Medicare beneficiaries between
greenhouse gas emissions, with heavy- 2000 and 2012, based on their zip codes.25
duty vehicles responsible for nearly a fifth The researchers linked exposure to fine
of those emissions.23 Heavy-duty vehicles particulate matter and ground-level ozone
like buses also produce large quantities of to higher rates of mortality.26 The study
air pollution, impacting the health of resi- concluded that exposure to particulate
dents and school children in the populous matter and ozone, even at levels below
areas they serve. national standards, contributes to adverse
Diesel exhaust from tailpipes is a dan- health impacts.27
gerous pollutant – one that is common Cancer rates: Diesel soot contains
in the air in urban areas and places with more than 40 toxic chemicals, including
frequent truck and bus traffic, including known or suspected carcinogens such as
the schools where our children learn and benzene, arsenic and formaldehyde.28
play. The main pollutants emitted by die- Diesel exhaust itself is classified as a po-
sel vehicles are particulate matter (very tential cancer agent by the U.S. EPA, and
fine particles that can be harmful when in- at least 19 of the hydrocarbons it contains
haled), nitrogen oxides (which contribute are known to or suspected to cause can-
to smog and ground-level ozone), hydro- cer.29 In 2012, the International Agency
carbons (which can cause cancer) and car- for Research on Cancer elevated the risk
bon monoxide (which can be dangerous in of diesel exhaust from “potentially carci-
high concentrations).24 These pollutants nogenic” to “carcinogenic with sufficient
6 Electric Busesevidence.”30 Specifically, exposure to die-
sel exhaust has been linked to higher rates Limits of “Clean” Diesel Technology
I
of lung cancer and greater risk for bladder
ncreased awareness about the public health threats from
cancer.31
diesel pollution has led environmental agencies and in-
Respiratory concerns: Diesel pollu-
dustry to limit emissions from diesel engines. While these
tion can also lead to decreased lung func-
efforts have reduced the dangers posed by diesel, none have
tion, respiratory tract inflammation and
been entirely successful in providing adequate protection
irritation, persistent wheezing, and ag-
for the environment and public health.
gravated asthma symptoms.32 Tiny par-
The EPA adopted more stringent diesel pollution stan-
ticles of diesel soot (fine particulate mat-
dards in 2000, limiting the amount of sulfur allowed in die-
ter, referred to as PM2.5 for the maximum
sel fuel, and the amount of particulate matter and nitrogen
size of the particles, 2.5 micrometers) are
oxides that could be emitted from diesel vehicles. Specifi-
especially hazardous because they can en-
cally, the regulation required that:
ter deep into lower airways, carrying toxic
chemicals such as polycyclic aromatic hy-
• Starting in 2006 and phasing in through 2009, diesel fuel
drocarbons (PAHs) that irritate the respi-
for vehicles had to be low sulfur. Ultra-low sulfur diesel
ratory tract.33 Diesel exhaust also contains
produces 10 to 50 percent less soot when burned com-
ultrafine particulate matter (the smallest
pared to traditional diesel.37
airborne particles, measuring from nano-
meters to a few micrometers), which is
• Starting in 2007, diesel vehicles manufactured had to emit
unregulated and may pose an even greater
90 percent less particulate matter than previous models.38
health threat, since the small size of the
particles allows them to travel deeper into
• Half of diesel vehicles sold between 2007 and 2009 had
people’s lungs and bloodstream.34
to emit 95 percent less nitrogen oxides and reduce emis-
Other impacts: Also present in diesel
sions of harmful hydrocarbons.39 By 2010, all diesel en-
soot are tiny particles of carbon, metal
gines sold were to comply.40
oxides and heavy metals that have been
linked to negative health impacts.35 Die-
However, despite these efforts, burning diesel for transpor-
sel pollution contributes to other envi-
tation remains dirty. Even in lower concentrations, the soot,
ronmental and public health problems,
chemicals and other emissions from diesel exhaust are potent
including smog, acid rain and global
public health threats. Some components of diesel exhaust, like
warming. Though transit systems using
ultrafine particles, pose health threats but remain unregulated.
diesel buses avert emissions when com-
Furthermore, regulations on diesel exhaust often fail to pro-
pared to driving single-occupancy vehi-
tect public health, as illustrated by recent scandals in which
cles, buses in the United States produced
diesel vehicles were found to emit much higher levels of pollu-
19.8 million metric tons of greenhouse
tion during real-world driving than during required testing. In
gases in 2015.36
2015, Volkswagen admitted it had intentionally manufactured
diesel vehicles that only used pollution controls during labora-
tory tests, emitting up to 40 times more nitrogen oxide pol-
lution while driving.41 Eleven million Volkswagen cars were
affected, while other major car companies have been accused
of using similar devices, including Chrysler and Mitsubishi.42
The technology available today to limit air pollution
from diesel engines remains inadequate, especially when
compared to zero-emission electric buses that are already
on the market and are increasingly affordable and reliable.
Moreover, electric buses will get cleaner as our electricity
grid is increasingly powered by renewable energy.
Pollution from Transportation Threatens Public Health 7Children Are Especially asthmatic children living near an indus-
trial New Jersey seaport with heavy diesel
Vulnerable to truck traffic found that greater exposure
Exhaust Pollution to carbon soot coincided with markers for
lung inflammation.48
Children are most vulnerable to the nega- Air pollution found in diesel exhaust –
tive health effects caused by air pollution; particulate matter and metals like nickel
their respiratory systems are still develop- and manganese – can also be harmful to
ing and they inhale more air per pound of developing fetuses. Researchers found a
body weight than adults.43 Diesel pollu- significant relationship between a preg-
tion is especially dangerous – for children, nant mother’s exposure to diesel soot and
there is no established safe level of expo- the chances her child could develop au-
sure to diesel exhaust pollutants.44 tism, adding to the body of evidence that
air pollution, as early as in utero, is harm-
ful for child development.49
Concerns about the effects of diesel ex-
haust on children’s health are particularly
troubling since millions of children spend
considerable time each day on diesel buses
– and many more attend schools where
diesel buses pick up and drop off passen-
gers and often idle with their engines run-
ning. Studies, such as the ones described
above, looking specifically at emissions
from diesel buses have verified those con-
cerns.
Credit: ThoseGuys119 via Flickr, CC BY 2.0.
Numerous studies have found that air Dirty Buses Expose Children
pollution harms a child’s lungs, especially
if the child already suffers from asthma.
and Neighborhoods to
A 2010 study conducted by researchers at Dangerous Pollution
Stanford University and the University of
California, Berkeley, linked exposure to Air pollution from buses is a particular
air pollution with altered gene expression threat since buses transport large numbers
among asthmatic children in California.45 of people and make many trips through
Other studies have concluded that ex- densely populated areas. There are a
posure to hydrocarbons from diesel ex- number of ways that people are exposed
haust in early childhood could increase to dangerous pollution from buses:
the likelihood of developing asthma.46 In At School: Buses idling in front of
2013, another set of researchers looked schools are one way that children (along
specifically at the impact of diesel exhaust with their guardians and teachers) may
particles on children in Cincinnati and be exposed to toxic diesel fumes. Accord-
concluded the diesel exhaust made the ing to the EPA, air pollution at schools,
children more susceptible to asthma by including concentrations of benzene and
turning off certain genes.47 Most recent- formaldehyde, is higher during the hour
ly, a 2017 Rutgers University study on when children are being picked up.50 A
8 Electric Buses2013 study by researchers in Cincinnati Austin, Texas also found higher concen-
found that concentrations of particulate trations of ultrafine particulate matter in-
matter and carbon at a school with many side buses.55 Higher levels of fine particu-
idling buses significantly decreased after a late matter and carbon were also found in
campaign to stop idling.51 school buses compared to air pollution in
While Riding the Bus: A real-time vehicles driving in front of the buses dur-
analysis in 2005 found that air quality in- ing a 2010 study in Seattle.56
side a vehicle’s cabin worsened when fol- In the Community: Another way peo-
lowing a diesel bus – a troubling fact given ple are exposed to dirty diesel pollution
that school bus caravans are common, es- from buses is simply by living or working
pecially on field trips or for sports events, near the busy roads on which buses and
and also an indicator of the sheer volume other vehicles travel. More than 45 million
of pollution produced by buses, especially Americans live within 300 feet of busy roads
older ones.52 The study found that the or other major transportation infrastruc-
level of soot, hydrocarbons and nitrogen ture, according to the U.S. EPA, and are
oxides to which passengers were exposed at risk of exposure to dangerous pollutants
was 11 times higher when following a die- in exhaust.57 Pollution from traffic is high-
sel bus compared to following no vehicle, est near roads and can harm lung function,
and eight times higher than when trailing induce asthma in children, and increase the
a gasoline vehicle.53 risk of death from heart disease.58 Studies
A number of studies have indicated have also linked air pollution to problems
that diesel fumes from school buses, par- with cognition. A 2017 cohort study of 2.2
ticularly older ones, may “self-pollute,” or million people in Ontario, Canada, found
cause air pollution within the bus itself. A that residents living closer to busy roads
2001 study by NRDC and the Coalition had higher rates of dementia.59 Reducing
for Clean Air found that diesel pollution the number of cars on the road by expand-
inside school buses was up to four times ing transit and other options, and electrify-
higher than levels of pollution in cars driv- ing vehicles, particularly the most-pollut-
ing in front of the buses.54 A 2008 study ing like buses, can help reduce the health
of air pollution in diesel school buses in threats posed by busy roads.
Pollution from Transportation Threatens Public Health 9Natural Gas Buses Contribute to Global Warming
N
atural gas buses are often touted as gas-powered buses emitted 6 percent
a cleaner alternative to diesel and it more annual greenhouse gas emissions
was once thought that they would than diesel buses.64 A 2015 study by re-
offer a climate benefit. While they can of- searchers from Carnegie Mellon Uni-
fer reduced nitrogen oxide emissions, nat- versity also found that, compared to con-
ural gas buses may emit more greenhouse ventional diesel transit buses, natural gas
gas emissions than their diesel equiva- buses are responsible for 6 percent more
lents, largely due to low fuel economy. lifetime greenhouse gas emissions.65
The primary component of natu- The extraction and production of
ral gas is methane, which is a power- natural gas can also cause air pollution
ful global warming pollutant. Over 20 and health impacts near gas operations.
years, methane traps 86 to 105 times For example:
more heat in the atmosphere than does
the same amount of carbon dioxide.60 As • In Northeastern Colorado, a study by
a result, even small methane leaks dur- researchers from the National Oceanic
ing the production, processing, storage and Atmospheric Administration and
and transportation of natural gas negate the University of Colorado traced high
its lower emissions of carbon dioxide levels of volatile organic compounds,
during combustion. Considering emis- precursors to ground level ozone, back
sions produced outside of the bus’s op- to oil and gas operations.66
eration, natural gas-powered buses like-
ly create more global warming pollution • In 2011, ozone levels in rural Wyo-
than diesel-powered buses. ming exceeded the worst air pollu-
A study by the environmental con- tion days in Los Angeles. 67 The worst
sulting firm M.J. Bradley & Associates days exceeded the EPA’s healthy limit,
compared tailpipe emissions of com- prompting the Wyoming Department
pressed natural gas transit buses and of Environmental Quality to urge the
diesel transit buses, finding that carbon elderly and children to stay indoors.68
dioxide emissions were similar for the
two types of buses.61 However, in a life- • A 2014 study in Utah linked oil and
cycle analysis (well-to-wheels, account- gas operations to the accumulation
ing for emissions from fuel production of air pollution and production of
and driving), the natural gas buses were ground level ozone.69
responsible for more greenhouse gas
emissions than the diesel buses – con- Even in a best-case scenario, with
tributing up to 13.3 additional tons of near-zero emissions emitted from the
carbon dioxide-equivalent greenhouse buses themselves, reliance on natural
gas emissions each year.62 gas cannot achieve deep reductions in
Another study, by the international greenhouse gas emissions, and worsens
consulting firm Ricardo, concluded that air pollution and health impacts where it
greenhouse gas emissions are higher is being extracted. Transitioning Ameri-
for natural gas buses compared to die- ca’s electricity grid to renewable energy
sel buses.63 In a lifecycle well-to-wheels and switching to electric transportation
analysis, the study found that natural is the cleanest and safest option.
10 Electric BusesMost of America’s Buses
Still Run on Dirty Fuels
T
oday, most of the nation’s public Even newer buses likely run on diesel, with
bus fleet continues to run on diesel, an estimated 95 percent of school buses in
though all-electric models are be- the country using diesel.76
coming a viable and permanent solution The fuel efficiency of traditional diesel-
to diesel pollution. powered school buses that fit 40 to 50 stu-
dents is 7 miles per gallon (mpg), while hy-
brids average 9 mpg.77 This puts a heavy cost
burden on school districts: according to the
School Buses American School Bus Council, districts pay
an average of $6,600 each year in diesel fuel
Nearly a half-million school buses were on
costs for every school bus in operation.78 This
the roads in 2017, outnumbering transit
also results in a significant amount of emis-
buses roughly 12 to 1.70 School buses come
sions, since school buses collectively traveled
in a variety of sizes – some seat 20 children,
an estimated 3.3 billion miles in 2017.79
while others can seat up to 90.71 Around 25
Switching to electric school buses offers
million students ride school buses each day.72
the greatest opportunity to reduce emis-
Many of the school buses that children
sions and schools’ fuel costs. Electric school
ride each day are old enough to predate the
buses can get the equivalent of 17 miles per
EPA’s latest diesel emission standards.73 Ac-
diesel gallon equivalent, and as America’s
cording to a 2015 survey, the average age of
electricity grid shifts to renewable energy,
a school bus in operation was 9.3 years, and
the buses will increasingly run on clean
school buses can operate for up to 16 years,
energy.80 Replacing all of America’s school
suggesting that many school buses on Amer-
buses with electric buses could avoid more
ica’s streets were likely purchased before the
than 5.3 million tons of greenhouse gas
2007 clean diesel rules took place.74 One es-
emissions each year and save more than $3
timate puts the number of pre-2007 school
billion in diesel costs for school districts.81
buses still on America’s streets at 250,000.75
Most of America’s Buses Still Run on Dirty Fuels 11Transit Buses 2007 (the year that more stringent diesel
standards went into effect) and have not
been rebuilt.87 An additional 7,400 buses,
Though public buses help reduce overall
or 18 percent of the current fleet, were
transportation emissions by keeping indi-
manufactured between 2007 and 2010,
vidual cars off the road, all-electric fleets
and haven’t been rebuilt, so they may not
could yield even cleaner air. The transpor-
meet current standards for nitrogen oxide
tation sector is responsible for 27 percent
and hydrocarbon pollution.88
of total greenhouse gas emissions in the
Diesel buses average an estimated 4
U.S., and public transportation buses on
miles per gallon; natural gas-powered
American streets collectively burned over
buses don’t fare much better, averaging
430 million gallons of diesel in 2014.82
just 4.5 miles per gallon (in diesel-equiv-
According to the 2016 National Transit
alent mileage), while diesel hybrid buses
Database compiled by the Department of
average 5 miles per gallon.89 Electric bus-
Transportation, 60 percent of transit bus-
es, on the other hand, are four times more
es active in the U.S. – more than 40,000
energy efficient than diesel or natural gas
of 67,000 total – were conventional buses
buses, averaging over 17 miles per diesel
running on diesel.83 Hybrid diesel buses
gallon equivalent. (See Figure 2.)90
made up another 12 percent of transit bus-
Replacing polluting diesel transit buses
es, while nearly 18 percent were powered
with electric buses could greatly reduce
by compressed natural gas.84 Less than 1
greenhouse gas emissions in the United
percent of transit buses were powered en-
States and benefits would continue to
tirely by electricity. (See Figure 1.)85
grow as America transitions to clean,
It is possible that more than half of
renewable energy. Replacing all of the
buses on the road predate the latest EPA
diesel-powered transit buses with elec-
standard on diesel pollution. According
tric buses in the United States could save
to the 2016 National Transit Database,
more than 2 million tons of greenhouse
nearly 38 percent of the nation’s active
gas emissions each year.91
diesel bus fleet was manufactured prior to
Figure 1. Percent of Active Transit Buses in the U.S. by Fuel Type86
Unknown/Other
7%
Compressed
Natural Gas
Hybrid Electric Diesel 17%
12%
Gasoline Compressed Natural Gas
4% Diesel Fuel
Electric Electric
0%
Gasoline
Hybrid Electric Diesel
Unknown/Other
Diesel Fuel
60%
12 Electric BusesFigure 2. Distance Traveled per Gallon of Diesel (*or Diesel-Equivalent)
Diesel: 4 miles
Natural Gas: 4.5 miles*
Diesel Hybrid: 5 miles
Electric: 17 miles*
Electric buses are 3 - 4 times more energy efficient than diesel or natural gas buses
On a local level, transit agencies can help to taking more than 4,000 cars off the road;
cities reduce their contribution to global replacing Denver’s 828 diesel buses would
warming by switching to electric buses. save nearly 47,000 tons of global warming
For instance, if Chicago Transit Authority emissions each year, equivalent to remov-
replaced its 1,653 diesel buses with electric ing more than 9,000 personal vehicles. (See
buses, it would save nearly 55,000 tons of Table 1. See Appendix A for a full list of
greenhouse gases each year, equivalent to America’s 50 largest transit agencies.)92
taking more than 10,000 cars off the roads. By expanding transit options and im-
The transit agency serving Philadelphia, proving bus service, while switching to
the Southeastern Pennsylvania Transpor- clean electric buses, cities and towns
tation Authority, could avert 22,000 tons of across the country can help reduce global
greenhouse gas emissions every year, akin warming emissions and local air pollution.
Table 1. Potential Emissions Savings from Electric Buses for Select Transit Agencies
Annual Emissions Averted Equivalent Number
Major City by Switching to Electric of Cars Taken Off
Agency Served State Buses (Short Tons) the Road
City of Phoenix Public Transit
Phoenix AZ 9,075 1,752
Department (Valley Metro)
San Francisco Municipal Railway San Francisco CA 32,049 6,187
Denver Regional Transportation District Denver CO 46,967 9,067
Metropolitan Atlanta Rapid Transit
Atlanta GA 10,889 2,102
Authority
Chicago Transit Authority Chicago IL 54,993 10,616
Massachusetts Bay Transportation
Boston MA 55,071 10,631
Authority
Southeastern Pennsylvania
Philadelphia PA 22,256 4,297
Transportation Authority*
Metropolitan Transit Authority of
Houston TX 21,715 4,192
Harris County
Most of America’s Buses Still Run on Dirty Fuels 13Clean, All-Electric Buses Make
Economic Sense for America’s
Schools and Cities
U
ntil recently, significant barriers while also providing more predictability in
stood in the way of electric bus adop- costs each year since electricity prices are
tion: electric buses had limited range, relatively stable compared to fuel prices.
were costly, and faced reliability challeng- The fledgling electric school bus market
es. Few were available on the market at all. is growing as more manufacturers begin
But technological innovations and sharp offering options; for instance, school bus
declines in battery costs are solving many manufacturer Blue Bird started rolling out
of these issues and manufacturers are pro- electric buses in 2018, while Thomas will
ducing high-quality, increasingly afford- follow in 2019.93
able, all-electric buses for use by school Initial results from a six-vehicle electric
districts and transit agencies. These im- school bus pilot program funded by the
provements are helping spur a boom in Clinton Global Initiative illustrate how
electric buses across the country. schools can potentially save money with
electric buses. Their analysis found that
an electric bus saves nearly $2,000 a year
in fuel and $4,400 a year in reduced main-
Long-Term Affordability tenance costs.94 If the bus is equipped to
send stored energy back to the electricity
grid (see text box “Linking Electric Buses
Savings for School Districts to the Electrical Grid Provides Greater
All-electric school buses can save school Benefits,” page 16), an electric school bus
districts money in annual operating costs could potentially generate up to $6,000
from reduced maintenance and fuel costs, in revenue each year, depending on their
utility’s rates. While a diesel school bus
14 Electric BusesFigure 3. Lifetime Cost of Electric and Diesel School Buses, Including Purchase Price,
Operating Costs, and Vehicle-to-Grid Revenue97
$300,000
Total Lifetime Savings $31,000
$250,000
l Bus
Electric Schoo
Total Lifetime Cost
$200,000
s
Bu
ol
cho
e lS
es
Di
$150,000
Breakeven Point
$100,000
$50,000
$0
0 1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16
Years of Operation
costs $110,000 upfront and an electric compared lifecycle costs of an all-electric
school bus today costs $230,000 (includ- school bus to a conventional diesel bus,
ing charging infrastructure), reduced using the old voucher amounts. The elec-
operating costs for the electric bus more tric school bus used in the analysis origi-
than make up the difference.95 Factoring nally cost $348,000, while the diesel bus
in other costs, like replacing the electric cost $139,000 up front.99 With California’s
bus’s battery, the study estimates that an voucher program and other incentives, the
electric school bus equipped with vehicle- purchase price of the electric bus dropped
to-grid capabilities makes up for its higher to $218,000, or $79,000 more than the die-
purchasing costs within 13 years of opera- sel bus.100 However, the electric school bus
tion, saving more than $31,000 over the saved $10,500 each year over the course of
bus’s lifetime. (School buses operate for its 16-year lifespan, paying back the extra
up to 16 years. See Figure 3.)96 upfront cost in less than eight years, and
Government funding and other incen- continuing to offer savings for years to
tives can make school buses even more come.101 With California’s newly increased
affordable (see section “Opportunities voucher amount of $220,000, the upfront
to Shift to Electric Buses,” page 23.) For cost of the electric bus would actually be
instance, California’s Hybrid and Zero- lower than the upfront cost of the diesel
Emission Truck and Bus Voucher Incen- bus, and would still offer fuel and main-
tive Project (HVIP) offers up to $220,000 tenance savings each year. Finally, costs of
for electric school buses sold in the state electric school buses are expected to fall in
(the voucher amounts increased in De- coming years as more manufacturers, like
cember 2017, up from $110,000 previ- Thomas and Blue Bird, enter the market
ously).98 An analysis by industry experts and technologies improve.102
Clean, All-Electric Buses Make Economic Sense for America’s Schools and Cities 15Savings for Transit Agencies
Linking Electric Buses to the Electrical Electric buses can be more affordable than
Grid Provides Greater Benefits fossil fuel buses in the long run, since they
have 30 percent fewer parts, no exhaust
E
lectric buses are powered by taking energy from the systems, their braking systems last longer,
electricity grid; when they are plugged in, their large and they don’t require oil changes or fos-
batteries charge and buses use that stored energy to sil fuels.105 According to studies of electric
travel on their routes. By managing when the vehicles are buses currently in operation, electric buses
charging, electric buses can help support the electrical grid save at least $0.19 per mile in lower main-
by charging at off-peak times. With appropriate pricing tenance costs.106 Over the lifetime of the
mechanisms and agreements with utilities, electric bus op- bus, an electric transit bus can avoid hun-
erators can benefit from financial incentives that support dreds of thousands of dollars in operating
charging when demand is low. (See page 25 for more on costs over an equivalent diesel or natural
agreements with utilities.) Used electric bus batteries could gas bus, from lower fuel and maintenance
also be repurposed for energy storage at the end of the bus- costs. According to an analysis by the Cal-
es’ useful lives, which can help support the electrical grid. ifornia Air Resources Board, an electric
Finally, new technology allows buses to send stored en- bus purchased in 2016 can save $458,000
ergy back to the grid. When equipped with vehicle-to- in fuel and maintenance costs compared
grid technology, electric buses can use their batteries for to a diesel bus, $336,000 compared to a
energy storage, providing a service to the grid by reserv- natural gas bus and $331,000 compared to
ing and selling electricity back at times of high demand. a diesel hybrid bus. (See Figure 4.)107
This is particularly valuable for school buses, which typi- Even though electric buses today are
cally charge overnight when electricity demand is lower; still more expensive upfront than their
are parked during the middle of day and evening, when diesel or natural gas-powered counter-
demand is highest; and often aren’t in use during the sum- parts, electric transit buses can pay for
mer when air conditioning use peaks. For example, if a themselves within 10 years of operation
school bus had extra juice after driving children home in through fuel savings and reduced mainte-
the afternoon, it could connect to the grid and sell excess nance costs. (See Figure 5.)109
energy back to the grid during the early evening hours New Flyer, the largest transit bus man-
when demand is still high. ufacturer in North America, says that its
Vehicle-to-grid features could help school districts make natural gas-powered buses start around
the finances of electric buses pencil out more easily. A 2014 $450,000 while their electric version starts
analysis from researchers at the University of Delaware es- at $700,000.111 Over the lifetime of the
timated that a school bus could generate more than $15,000 bus, however, the company estimates the
from selling energy back to the grid, providing net ben- electric bus saves $400,000 in fuel expens-
efits after five years of operation.103 Early pilot projects with es and $125,000 in averted maintenance
electric school buses in three school districts in California costs, making up for the upfront cost dif-
found each bus could generate more than $6,000 each year ferential.112
by sending extra electricity back to the grid during periods Proterra says its standard electric transit
of high demand.104 bus costs $750,000, compared to $500,000
By providing a source of energy storage, electric buses for a conventional diesel bus.113 The com-
could support a transition toward a grid powered by renew- pany estimates that its electric buses of-
able energy – helping to incorporate variable sources of re- fer fuel and maintenance savings of up to
newable energy like wind and solar into the grid. School $50,000 a year over fossil fuel-powered
buses may be particularly important for helping to inte- buses, meaning transit agencies can re-
grate solar energy, since they are typically parked and can coup the extra cost in five to seven years
charge during peak solar production at mid-day. (depending on the bus’s purchase price
and operational cost variables), continu-
16 Electric BusesFigure 4. Estimated Lifetime Fuel and Maintenance Costs of Transit Buses, by Fuel Type108
800
Lifetime Fuel and Maintenance
700
Costs (thousands of dollars)
600
500
400
300
200
100
0
Diesel Natural Gas Diesel Hybrid Electric
Figure 5. Cumulative Cost of Transit Buses, by Type, Including Purchase Price and Operations110
$1,400,000
$1,200,000 Total Lifetime Savings $81,000
$1,000,000
Total Lifetime Cost
us
sit B
Tran
tric
Elec
$800,000 s
Bu
it
ans
Tr
el
es
Di
$600,000
Breakeven Point
$400,000
$200,000
$0
0 1 2 3 4 5 6 7 8 9 10 11 12
Years of Operation
Clean, All-Electric Buses Make Economic Sense for America’s Schools and Cities 17Figure 6. Estimated Annual Operating Costs, for Fuel and Maintenance, of Transit
Buses, by Fuel Type115
$80,000
Annual Operating Cost -
$60,000
Fuel & Maintenance
$40,000
$20,000
$0
Diesel Natural Gas Diesel Hybrid Electric
ing to save money every year over the pay for up to 80 percent of the purchase
lifespan of the bus.114 price of a bus (or other capital investment
Those savings don’t account for the for transit).117 A 2017 study from Carnegie
benefits of electric buses to the environ- Mellon University found that, with federal
ment and public health, like cleaner air funding to help purchase the buses, all-
and less pollution. The Chicago Transit electric buses had the lowest lifetime costs
Authority (which in 2014 became the first when compared with all other buses on the
major transportation agency in the U.S. to market, including hybrid, diesel, biodiesel
run an electric bus) estimates that a single or natural gas vehicles.118 The study con-
electric bus saves the city nearly $80,000 cluded that all-electric buses are the best
per year: $25,000 in fuel and $55,000 in option available to transit agencies because
avoided healthcare expenses resulting of their low lifetime costs and their envi-
from cleaner air.116 ronmental and public health benefits.119
Because transit agencies can utilize fed- The upfront cost of electric buses is fall-
eral assistance for capital costs, but not op- ing, too. For example, in 2017, bus manu-
erating costs (through the Urbanized Area facturer BYD won a bid with LA Metro
Formula Funding program), purchasing for 60 all-electric buses, with an estimated
a bus with higher upfront costs but lower pre-tax price around $686,000 per bus,
operating expenses may be a better value competitive with bids for low-NOX natu-
for agencies in the long run. Transit agen- ral gas buses priced around $620,000 be-
cies in the U.S. can use federal money to fore taxes.120
18 Electric BusesIncreasing Range will have a 150 kWh battery pack; both
models will have vehicle-to-grid capa-
bility, allowing them to store energy for
the grid when plugged in.122 Production
Electric School Buses Get Kids to is slated for 2018.123
School and Back Home Again The Canadian company Lion is already
Electric school buses today have rang- selling the first all-electric medium-sized
es long enough to cover most school school bus built in North America.124 The
bus routes. For instance, Blue Bird batteries of the “eLion” bus can store 130
has come out with two electric school kWh of electricity, providing range of 50
buses, one small and one large, both to 100 miles on a single charge, depend-
of which can drive 100 miles on one ing on the model.125 It has an estimated
charge. The company estimates that the battery life of 15 years and fully charges
100-mile range can cover 80 percent of in four to six hours, though fast-charging
school bus routes with just an overnight development is already underway and is
charge, and up to 90 percent of school expected to be released soon.126 Green-
bus routes in the county if the bus can Power also offers a 72-person school bus
charge mid-day.121 The full-size model that can travel 75 to 140 miles.127
A contactless electric bus charging station in Washington state. Credit: Creative Commons/SounderBruce, CC BY-SA 2.0
Clean, All-Electric Buses Make Economic Sense for America’s Schools and Cities 19Electric Transit Buses Can Serve Improved Reliability
Urban Transportation Needs
Recent advances in the range capabilities Electric buses require less maintenance
of transit buses make them an increas- than other types of alternative-fuel buses,
ingly feasible option for transit agencies. in part because they have 30 percent fewer
Hyundai’s new electric bus can travel parts than diesel buses and no exhaust sys-
180 miles on a single charge, New Flyer tems.134 A 2016 report from the National
has a bus with a 200-mile range, and Renewable Energy Laboratory found
Proterra’s electric bus models can travel electric transit buses required mainte-
200 to 350 miles.128 Typical bus routes nance just once every 133,000 miles driv-
in urban and rural areas are shorter than en, while natural gas buses needed on av-
200 miles a day, meaning that electric erage to be serviced every 45,000 miles.135
buses could serve most routes in the One concern with electric buses histori-
country with today’s technology.129 For cally had been their ability to perform well
longer routes, fast-charging options are in cold or wintery weather. Quebec, Can-
available, whereby buses can charge for ada, is operating 60 electric school buses
a few minutes periodically throughout while electric school buses are also on the
their route, using technologies such as road in Minnesota and Massachusetts, dem-
overhead contactless chargers. 130 (See onstrating the capability of electric buses to
photo on page 19.) function in all kinds of weather. As transit
BYD has a 60-foot articulated elec- operators and manufacturers gain more ex-
tric bus ,the first of its kind, available perience working in difficult environments,
in the U.S. today that can travel 200 such as extreme cold, they learn solutions
miles with one charge.131 One model in that improve reliability. For example, in
development from Proterra can store 2015, Worcester, MA, experienced its great-
660 kWh of energy in its battery and est snowfall of all time, with a January bliz-
holds the world record for electric ve- zard dropping 34 inches of snow and Feb-
hicle range after traveling 1,100 miles ruary setting the record for coldest month
on a single charge in September 2017.132 ever. The agency had been operating six
Connected to a high-speed charging electric buses and identified the need to be
system, the bus only takes one hour to able to heat the areas around fast chargers
be fully charged.133 to clear ice and snow, as well as the charging
section on the top of the bus.136
20 Electric BusesMajor Cities and States Take the
Lead on Bus Electrification
T
he market for electric buses is chang- • In July 2017, the Los Angeles County
ing rapidly as technology improves Metropolitan Transportation Author-
and prices continue to fall. A 2018 ity announced its transit fleet would be
study by Bloomberg New Energy Finance emission-free by 2030, requiring at least
projected that the number of electric bus- 2,300 electric buses.142 In the agency’s
es in the world will triple by 2025, a span announcement, Metro Chairman and
of just seven years.137 Driven by a need to Los Angeles Mayor Eric Garcetti said,
combat air pollution, particularly in China, “We can wait for others, and follow –
electric buses will become more popular at the expense of residents’ health – or
and more affordable in a short amount of lead and innovate, and reduce emissions
time.138 Bloomberg notes that by 2026, the as quickly as possible. I’d much rather
purchase price for some electric models do the latter.”143
will likely be cost competitive with diesel
versions because of falling battery prices.139 • Mayors of 16 cities in California, repre-
At the end of 2016, there were roughly senting nearly 8 million people, submit-
300 zero-emission transit buses operating ted a letter in January 2018 in support
around the country, but hundreds more of state proposal that would require all
are on their way.140 In a February 2017 in- fleets in California to be 100 percent
terview, the CEO of Proterra said that by electric by 2029.144
2020, a third of all new buses sold in the
country could be electric, jumping to 100 • King County Metro Transit, which
percent of sales by 2030.141 serves the Seattle area, will acquire 120
Demand for electric buses is high across all-electric buses by 2020.145
the country. (See Appendix B for more
transit agencies’ electric bus plans.) For • MTA New York City Transit, the
instance: country’s largest transit network, start-
Major Cities and States Take the Lead on Bus Electrification 21ed testing five New Flyer electric buses ing more than 16,000 buses – about three
across its system in February 2018, and times the size of New York City’s bus fleet,
similar tests are planned for Boston, the largest in the U.S.152 The transition
Los Angeles, Portland and Salt Lake in Shenzhen illustrates the technological
City in 2018.146 The buses will have ac- readiness of electric buses and the imme-
cess to rapid charging at the beginning diate feasibility of large-scale transitions.
and end of their routes and will enable Investment and interest from manufac-
the transit agencies to better define turers is growing as well, thereby expand-
their needs, helping to inform the elec- ing the number of options available and
tric bus market.147 reducing costs. For instance, in May 2017,
Hyundai unveiled its first electric bus.153
• Since 2016, seven agencies in Califor- In October 2017, Volkswagen announced
nia, making up one-third of the state’s plans for a $1.7 billion investment in elec-
transit buses, have committed to all- tric vehicles including buses and trucks.154
electric fleets by 2040.148 For example, Volvo has also been developing new mod-
Antelope Valley Transit Authority in els of electric buses, expanding their range
southern California plans to convert all and improving battery and charging tech-
of its 85 buses to electric by 2021, saving nology.155
an estimated $46 million over the life- School districts are also starting to elec-
time of the buses.149 trify their buses. The largest pilot program
is underway in California, providing three
• In January 2018, the Chicago Transit school districts with 29 electric buses from
Authority requested proposals for 45 the manufacturers Lion, TransTech and
new all-electric buses.150 Motiv Power Systems.156 In 2016, four
school districts in Massachusetts became
Outside the U.S., other cities are lead- the first outside of California to purchase
ing the way. In December 2017, Shen- electric school buses – four in total, made
zhen, China, became the first city in the by Lion.157 In the fall of 2017, the first elec-
world to exclusively operate all-electric tric school bus (also manufactured by Lion)
buses.151 The city currently owns more arrived in the Midwest in the suburbs of
electric buses than any other city, operat- Minneapolis-St. Paul, Minnesota.158
22 Electric BusesOpportunities to Shift to Electric Buses
A
merica’s fossil fuel buses produce large Volkswagen Settlement Money: The
quantities of greenhouse gas emis- recent settlement in the “Dieselgate” case,
sions and air pollution, contributing which resulted from Volkswagen’s (VW)
to climate change and public health prob- deliberate violation of clean air standards,
lems. Any new diesel buses purchased now awarded billions of dollars for state and
will continue polluting for years to come local officials to invest in zero-emission
since transit and school buses have lifespans transportation.159 Of the settlement, $2.7
longer than a decade. Fortunately, electric billion created a Mitigation Trust that allo-
buses produce far fewer carbon emissions cates funds to states to replace heavy-duty
over their lifetime and eliminate localized vehicles including school buses and transit
air pollution from fossil fuel burning on city buses and charging infrastructure.160
streets. As America transitions to an electrical In states across the country, there has
grid powered by renewable energy, electric been interest in spending the settlement
buses will offer even greater environmental money on replacing diesel buses with all-
benefits. Considering all of America’s nearly electric alternatives. For example:
70,000 transit buses and 480,000 school
buses will have to be replaced in the next • Major utilities, including Duke Energy
15 to 20 years, there is room for large-scale and Indianapolis Power & Light Com-
adoption of electric buses. pany, voiced support for using the VW
The time is right for state and local funds to buy electric school buses.161
officials to begin making the shift to all- Transit agencies are also eager for the
electric public transportation. The fall- funding to switch to electric buses –
ing costs of electric buses, coupled with from Lane County, OR, to Colorado
the availability of new funds to support Springs, CO, transit agencies are asking
the transition, provide an opportunity for for portions of the settlement money to
school districts, transit agencies, cities and purchase electric buses.162
others to accelerate the transition to clean
electric buses. Opportunities for funding • Colorado plans to spend $18 million,
electric buses include: or a quarter of its allocated Volkswagen
Opportunities to Shift to Electric Buses 23You can also read
