Chair Tom Galloway and Members of the Planning and Works Committee

Transcription

1 Region of Waterloo Transportation and Environmental Services Transit Services To: Chair Tom Galloway and Members of the Planning and Works Committee Date: File Code: D09-90 Subject: Proposed GRT Business Plan Recommendation: That the Regional Municipality of Waterloo approve the GRT Business Plan , as described in report TES-TRS-17-15, dated, with the implementation of the business plan subject to Regional Council s annual budget deliberations; And that the Regional Municipality of Waterloo direct staff to prepare the preliminary GRT Capital Budget to include the facility, equipment and vehicle capital requirements as set out in the GRT Business Plan. Summary: Over the past 18 months the GRT Business Plan Steering Committee has been working with WSP Consultants to develop the proposed GRT Business Plan which will guide the planned improvements to the regional transit network and service levels over the next five years to achieve the Regional Transportation Master Plan ridership target of 28 million annual riders by The Steering Committee consisted of Councillor s Elizabeth Clarke, Karl Kiefer, Sean Strickland, and regional staff Blair Allen, John Cicuttin, Cathy Deschamps, Reid Fulton, Eric Gillespie, Geoffrey Keyworth, Paula Sawicki. The transit service improvements recommended in the Business Plan would complete the ixpress network, realign routes to more of a grid network connecting to ION stations and provide more frequent service on high ridership corridors. To deliver these planned service improvements, an additional 250,000 annual service hours and 48 buses would Page 1 of 83

2 be required by However, the GRT Business Plan Steering Committee supports the implementation of the transit service expansion over 7 years instead of 5 years as a more affordable strategy. This approach will delay achieving the targeted RTMP ridership goal of 28 million riders by two years to This strategy is discussed in more detail in the Financial Plan - Section 7 of this report. The proposed transit network and annual service improvement plans will be refined annually based on public feedback and changing land use and travel patterns, and the implementation of the annual service improvements would then be subject to annual budget deliberations and Regional Council approvals. The GRT Business Plan also prescribes action in other supporting areas as summarized below: Transit Priority Measures Implement a more formal multi-divisional process that evaluates and implements transit priority measures such as signal priority and queue-jump lanes to minimize traffic delays experienced by transit vehicles. Improved and more reliable travel times encourage greater ridership. Transportation Demand Management (TDM) Develop a five-year TDM plan that supports the ridership growth strategy of the GRT Business Plan The five-year TDM plan is scheduled to be submitted to the meeting of Planning and Works Committee. Service Performance Management Continue development of a comprehensive performance management system through automation of analytic methods that transform large volumes of data into meaningful information. Automated tools facilitate the necessary analysis of performance and trends in relation to key performance indicators and targets for each business unit and system wide. GRT/LRT Integration Continue efforts to ensure service integration between bus and rail, and initiatives that enhance active transportation access and transit-supportive land uses at LRT stations. The implementation of the EasyGO smart card system will make it convenient to pay one fare to access all GRT modes. It also speeds up boarding times on an LRT vehicle by allowing passengers to pay their fare on the LRT platform before boarding any of the four doors on each side of an LRT vehicle. Other on-going integration initiatives include Page 2 of 83

3 promoting the launch of LRT and the integrated GRT network, passenger wayfinding, and a range of coordinated operational and security procedures. Customer Service Implement customer service initiatives that enhance GRT s citizen-centred service delivery culture. Increase customer engagement by publicly sharing performance results of service attributes important to customers such as schedule adherence and on-board passenger crowding. Also, publicly share annual service improvement plans and status of completion. Encourage customer and public feedback on how to improve customer service through a formal survey program and through direct interaction with GRT management at various passenger facilities. Marketing Implement a more extensive marketing program to leverage the significant regional transit investments such as LRT and EasyGO fare card system. Create greater awareness of the improved competitiveness of GRT to encourage more frequent use and loyalty among existing riders and more importantly to entice new riders to GRT. Technology Continue to advance technology to support Traveller Information Systems and Transit Management Systems through the implementation of: i ) additional quality assurance and preventative maintenance programs for hardware and technical equipment on buses, ii) adequate support to maintain software applications, system interfaces, integration upgrades and enhancements, iii) the research and development of new technology and, iv) adequate support to maintain, develop and analyze large volume data used internally and for public information. Next Steps Pending Council approval of the proposed GRT Business Plan , staff would undertake public consultation in late September and October of this year. The primary focus would be on the proposed transit network changes that would be implemented when the ION LRT is to begin revenue operations in late spring Proposed service changes for September 2018 would also be displayed with a note that any potential implementation would be subject to approval of the 2018 Regional Budget. Staff plan to provide an information report to the September 12, 2017 Planning and Works Committee meeting regarding the Fall 2017 public consultation process. Report: The GRT Business Plan identifies the transit network changes and service level improvements required over the next five years to attain the 2010 Regional Page 3 of 83

4 Transportation Master Plan transit ridership targets, to support the Regional Official Plan growth and urban intensification goals, and to achieve seamless integration of ION LRT and BRT, and conventional bus services. The new business plan addresses seven key focus areas: 1. Service Improvement Plan & Ridership Growth Strategy 2. Service Performance Management Plan 3. GRT/LRT Integration Plan 4. Customer Satisfaction Plan 5. Marketing Plan 6. Technology Plan 7. Financial Plan Background Ridership Targets The 2010 Regional Transportation Master Plan established transit ridership targets of 20 million rides in 2016, 28 million rides in 2021 and 53 million annual rides in Increasing the share of travel by transit supports the regional goals of managing growth sustainably, improving air quality and contributing to a thriving and liveable community. To achieve 28 million rides by 2021 requires ridership to increase an average of 7.2% annually. Since GRT was established in January 2000, ridership has increased an average of 5.1% annually. The 2016 RTMP ridership target of 20 million was attained in The 5.1% annual growth would have been higher if not for recent declines of 1.7 million annual rides from 2013 to 2015 due to several factors: i) loss of school board funded high school trips, ii) service impacts due to construction detours, iii) significant annual fare increases starting in 2012 and iv) localized service reductions in 2013 and Other non-local factors include lower fuel prices and perhaps some transit trips shifting to Uber or similar services. Recent transit ridership declines have also been experienced by other southern Ontario transit systems. However, there are several market fundamentals in the Region that point to future ridership growth. Population continues to grow and a young and diverse work force has a greater propensity to use transit. Mixed-use development and intensification along the central transit corridor will support and benefit from higher-order transit service - ION LRT. Also, fewer construction detour impacts will again make conventional bus routes more convenient and reliable in the near future. Ridership Projections New ridership projections were developed based on the positive impact the LRT will have on the development of a competitive and integrated regional transit network. The Page 4 of 83

5 combined ION LRT and BRT ridership projected in the new ground up forecast is comparable to the results of the travel forecast model based projections used to support the Rapid Transit Business Case. System-wide upper range and mid range ridership forecast scenarios were developed in the new analysis. In both cases, bus service expansion was also included at 50,000 service hours annually or an additional 250,000 service hours at the end of the five-year plan. The 2017 Regional Budget approved an additional 50,000 annual service hours in 2017 of which 18,000 service hours representing the 205 Ottawa ixpress were deferred for implementation to April As illustrated in Table 1 below, the upper range 2021 system ridership forecast of 29.7 million exceeds the 28 million 2021 RTMP ridership target. The mid range 2021 ridership forecast of 28.3 million achieves the 28 million 2021 RTMP ridership target. Without annual bus service expansion both upper range (25.4 million) and mid range (24.1 million) ridership forecasts fall considerably short of the 28 million 2021 RTMP ridership target. Staff are supporting the mid range system ridership forecast (including annual bus service expansion). The rate of ridership growth of the mid range scenario is reflective of the experience of other cities with the successful implementation of their first LRT line. Table 1: GRT System Ridership Forecast GRT System Ridership Forecast (millions) Scenario Upper Range Mid Range No bus expansion (upper range) No bus expansion (mid range) The five year ridership forecast will be recalibrated each year based on actual results of the previous year. As discussed below, ridership growth will be dependent on continued service improvements. Two other policy directions that have major impact on short and longterm ridership growth are continued efforts to encourage transit-supportive land use at LRT stations and along BRT and ixpress lines, and parking strategies and pricing that support land use intensification and encourage the use of sustainable modes of travel. Service Growth To achieve the mid range annual ridership forecast of 28.3 million by 2021 requires continued service improvements to the bus network to support the LRT line and to Page 5 of 83

6 develop an integrated regional transit network. Between 2017 and 2021 it is estimated that annual bus service hours need to increase on average by 5.7% (50,000 hours) along with the implementation of ION LRT to achieve the 2021 RTMP ridership target of 28 million. This represents an increase of approximately 250,000 annual service hours; from 760,000 service hours in 2016 to just over a 1,000,000 by Also, an additional 40 peak buses would be required over the five-year period plus an additional 8 maintenance spare buses for a total conventional fleet expansion of 48 buses. The proposed service growth of 250,000 service hours and addition of 48 conventional buses by 2021 will be subject to annual budget deliberations and the recommended service growth for any given year may be deferred or reduced. Comparing actual budget approvals to the business plan recommendation for service growth will determine the degree of deviation from achieving the 2021 RTMP 28 million ridership target. 1.0 Service Improvement Plan and Ridership Growth Strategy The proposed changes to the transit network and service levels over the next five years and potential alternative service delivery models are discussed in detail in Appendix A Service Improvement Plan and Ridership Growth Strategy and summarized below. GRT is planning annual service improvements between 2017 and 2021 to increase ridership by completing the ixpress network, realigning routes to more of a grid network connecting to ION stations and providing frequent service on high ridership routes. The proposed 2021 Transit Network is illustrated in Figures 1 and 2. The proposed transit network and service implementation priorities will be refined each year based on public feedback through the consultation process, annual budget deliberations and, ridership and land use changes. Completion of ixpress Network The ixpress network was developed to provide frequent, limited-stop service along major travel corridors that connect with ION stations. These routes provide faster, more direct service between key destinations in the Region. Large shelters, bicycle racks, and real-time passenger information displays are provided at most stops to enhance the rider experience. It is proposed the ixpress network would be fully implemented as illustrated in Figure 3 by New and extended ixpress routes proposed to be implemented by 2021 include: Page 6 of 83

7 Ottawa ixpress, serving the Ottawa Street corridor between Sunrise Centre and Lackner Boulevard, connecting to Mill and Borden stations (2018), with a possible extension to Trussler Road (2021); An extension of the 201 Fischer-Hallman ixpress to Block Line Station and Conestoga College, via Block Line Road, Manitou Drive and Homer Watson Boulevard (2018); An extension of the 200 ixpress with branded buses (ION Bus) to the South Cambridge Shopping Centre (2019); and 206 Coronation ixpress, serving the King-Coronation corridor between Fairview Park Mall and West Galt, connecting to Fairway Station (2019). 1.1 Proposed Annual Service Improvements ( ) The proposed annual service improvements between 2017 and 2021 that are required to complete the 2021 Transit Network are summarized in Table 2 and discussed in more detail in the section below. The staging of annual service improvements is based on ION LRT beginning revenue service in late spring Page 7 of 83

8 Table 2: Proposed Annual Service Improvements Time Period Improvements Existing Routes Affected* 2017 Frequency improvements Cambridge Centre Station New midday service Alternative Service Delivery Pilot 10, 27, 51, 52, 56, 57, 61, 75, 110, 200, 201, 202 ixpress (Approved in 2017 Budget based on Preliminary Business Plan report, August 2016) Late Spring 2018 Central Transit Corridor route restructuring Southwest Kitchener Phase 1A North Waterloo Ottawa Street Corridor 205 ixpress introduced UW Transit Station 1, 2, 3, 4, 7, 8, 9, 11, 12, 13, 14, 16, 20, 22, 23, 27, 29, 31, 33, 73, 78, 92, 200, 201, 202, 204, 205 ixpress Fall 2018 Southwest Kitchener Phase 1B 10, 61, 110, 116, 201 ixpress Fall Completion of ixpress network 200 ION Bus extended in Cambridge 206 Coronation ixpress introduced Cambridge Phase 1 Galt, Preston Southwest Kitchener Phase 2 Cambridge Phase 2 Preston, L.G. Lovell Industrial Park, Cambridge Business Park North Waterloo Phase 2 Complete transition of routes from Charles Street Terminal to Downtown Kitchener ION stations Frequency Improvements Additional services to new growth areas and the Townships * Route numbers may change as route revisions are made 51, 52, 53, 54, 55, 57, 58, 59, 61, 62, 63, 111, 200 ION Bus, 206 ixpress TBD 2017 Service Plan The approved 2017 Regional Budget included a range of service improvements as Page 8 of 83

9 described below and illustrated in Figures 4 and 5: 1. Frequency improvements on high-ridership routes, to address overcrowding and encourage ridership growth: Routes 10 and 110 (which travel between Fairview Park Mall and Conestoga College), and the 201 and 202 ixpress. 2. Midday service reintroduced to Routes 27 Chicopee and 57 Blair Road on weekdays. This would reverse service reductions made in 2014, improving transit accessibility to Freeport Hospital in the summer months and to West Galt year-round. 3. Alternative transit service delivery pilot program for a lower-demand area(s). A consultant has been retained to undertake the pilot study. (see Appendix A - Applications for Alternative Service Models section for detail). During the 2017 Regional Budget process, the implementation of the 205 Ottawa ixpress was deferred from September 2017 to April (Late Spring) Service Plan The proposed 2018 Transit Network would be implemented with the launch of ION LRT, and involves the restructuring of routes to more directly connect with ION stations and minimize duplication of service (Figure 6). Most routes in the Central Transit Corridor and Southwest Kitchener would be modified at this time. Some routes that serve the University of Waterloo would be realigned to access the Transit Plaza bus-only roadway adjacent to the UW LRT station. Central Transit Corridor (CTC) Route Changes: 200 ixpress revised to operate from Fairway Station to Ainslie Street Terminal only, and re-branded as ION Bus with new vehicles. Service between Conestoga Mall and Fairway would be replaced by ION LRT. Route 7 Mainline streamlined from Fairway Station to Conestoga Station via King Street and Connaught Street. Branches to the University of Waterloo (7D, 7E) would be replaced by ION LRT. Passengers travelling on Route 7 and destined to University of Waterloo would transfer to east-west routes on University Avenue or Columbia Street. A high frequency of service is also required along the King Street corridor to accommodate increasing demand from redevelopment and intensification and from areas beyond the walk distance to an LRT station. Route 9 Lakeshore split into two routes, to provide more direct service. One route would serve the David Johnston Research & Technology Park and McCormick area; the Page 9 of 83

10 other route would serve the Hazel Street corridor. The McCormick and Hazel areas are high ridership neighbourhoods that will no longer be served by the 200 ixpress and are beyond the catchment area of an LRT station. As a result, a high frequency of service on both local routes would be provided. This route would also provide service to the West Ring Road. New direct route on Weber Street from University Avenue to Fairway Road, connecting with Fairway Station and additional ION stations in Downtown Kitchener. This would replace portions of routes 4, 7 and 8, streamlining service in this major corridor parallel to ION. Some downtown Kitchener routes (eg., Route 1 and 204 ixpress) would bypass Charles Street Terminal and facilitate transfers at the Central, Queen, or Frederick LRT stations. Charles Street Terminal will continue to be used by intercity bus operators, including GO, Greyhound and Coach Canada and some GRT routes until the multimodal hub at King and Victoria Streets is operational. Southwest Kitchener Route Changes: In Southwest Kitchener, routes would be realigned to connect to predominantly Mill, Block Line or Fairway LRT stations. With a focus on connections at these locations, the Forest Glen Terminal will become redundant. Highlights include: Expanded local service to the Huron Village/Rosenberg communities. More direct service between the Huron Business Park and ION LRT. Extension of the 201 ixpress along Block Line Road to the Block Line station. Implementation of the 205 Ottawa ixpress, which would provide a missing link connecting southeast and southwest Kitchener, integrating with ION LRT at the Borden and Mill stations. UW Transit Plaza: Revising routes 9, 13, 31, 200 and 201 ixpress to serve the new multi-modal transit station at the University of Waterloo. These routes would then be integrated with the University of Waterloo ION station. Discussions are underway with the University of Waterloo on the potential for the 202 ixpress to serve the new UW transit plaza. Combined, the restructuring of CTC routes, Northwest Waterloo, and Southwest Kitchener routes would be completed in late spring 2018 without the addition of service hours or peak buses, through the reallocation of existing service. The reallocation of existing service would also fund the implementation of 10 minute peak frequency on the 201 and 202 ixpress lines. The streamlining of Route 7 and cancellation of the 200 ixpress between Conestoga and Fairway would make 22 peak buses and approximately 60,000 service hours available, which would be redeployed to provide the Page 10 of 83

11 resources necessary to support the service changes described above (September) Service Plan The proposed service changes for September 2018 relate to improved service to Conestoga College and to better integrate with ION LRT level of service (Figure 6). Highlights include: Routes 10 Conestoga College more direct service between Fairway Station and Conestoga College 201 ixpress extend from Block Line Station to Conestoga College, replacing the current Route 116 College express with frequent, all-day service. Extend hours of operation and frequency of service on selected routes to coordinate with ION LRT level of service. Contingency hours to respond to service gaps, operational issues and increased ridership demands due to impact of ION LRT (September) Service Plan The proposed service changes for 2019 involve completion of the ixpress network in Cambridge and restructuring of local routes to integrate with the ixpress network. Highlights include: 200 ION Bus - extend to the South Cambridge Shopping Centre along Main Street to connect east Galt to Hespeler Road and provide a one-seat ride to the Fairway LRT station. 206 ixpress - The Coronation ixpress would provide a frequent, direct link between West Galt, Cambridge Memorial Hospital, Preston, Sportsworld and Fairway LRT Station, providing a one-seat ride to ION LRT. Many of the local routes in Cambridge would also be restructured at this time to connect with ION Bus stations, provide more of a grid network, reduce duplication with the Coronation ixpress, and improve hours of operation (Cambridge Phase 1) Service Plans Any service changes proposed for that were not fully implemented would be programmed for this time period. In addition, the following improvements are contemplated on a conceptual level and are subject to further refinement: Route extensions to serve further development of the Rosenberg and Doon South communities (Southwest Kitchener Phase 2). Streamlined, two-way service through Preston, the L.G. Lovell Industrial Park, and Cambridge Business Park (Cambridge Phase 2) Page 11 of 83

12 Route 31 Columbia extension to serve the development of the Clair Hills community (Northwest Waterloo Phase 2). Complete permanent transition of routes from Charles Street Terminal to Downtown Kitchener ION stations, including the new King Victoria Transit Hub. Additional frequency improvements on priority routes across the network. Additional services to new growth areas and the Townships see the Alternative Service Models section in Appendix A for more detail. 1.2 Transit Priority Measures There are a wide range of transit priority measures (TPM) that can assist transit operations including yield to bus legislation, bus-only movements, queue-jump lanes, shoulder bypass lanes and exclusive bus-lanes. TPM s reduce traffic delays experienced by transit vehicles thereby improving transit travel times and schedule reliability. As a result, transit service is more attractive to users encouraging greater ridership. The larger capacity of transit buses and trains means transit priority measures move more people efficiently thereby improving the overall transportation system throughput. Currently in the Region, the application of TPM s is limited to a few locations including queue-jump lanes and signal priority along Hespeler Road, signal priority along University Avenue, and by-pass shoulders along Highway 8. The size of the GRT network suggests there is considerable opportunity to increase the application of TPM s to improve transit travel times and service reliability. It is proposed that a formal inter-divisional working group be established to review the locations where transit vehicles experience the greatest traffic delay as determined by the on-board vehicle location system. Next steps would be to evaluate the range of feasible transit priority measures, undertake a preliminary design, budget and program the transit priority measure in the Transportation Capital Program. 1.3 Transportation Demand Management The Region s Transportation Demand Program (TDM) is positioned to support GRT s ridership growth strategy through many of the current TDM initiatives. For example, the Travelwise Transportation Management Association can be leveraged to promote directly to all member employees the benefits of ION, GRT and active transportation options, and to promote and distribute the EasyGO fare card. Other opportunities include working with area municipalities through the development approval process to ensure subdivision and site design of developments are transit-supportive and pedestrian and bike friendly. TDM staff can further collaborate with other Regional departments and area municipalities in their ION LRT station area planning processes (including transit, active Page 12 of 83

13 transportation, and parking) currently underway. In anticipation of the launch of ION and the transit network redesign, there is an opportunity to support the inclusion of TDM principles into these plans to encourage modal shift. A TDM Plan has been developed that includes many projects and initiatives that support the ridership growth strategy of the GRT Business Plan The TDM Plan is being submitted to the Planning and Works Committee for approval. 2.0 Service Performance Management Plan On an average weekday, GRT deploys almost 200 buses a day to deliver over 3,600 bus trips that carry 65,000 riders. The current performance management system provides a solid foundation to develop a more robust and comprehensive service performance management system. The goal is for each business unit to have available the necessary data and analysis tools to more effectively manage the system. One of the challenges is to transform the large volumes of data generated daily by the automatic vehicle location system, automatic passenger counters and, in the near future, the EasyGO smart card system into meaningful information. It is important that automated tools continue to be developed that facilitate the necessary analysis of performance and trends in relation to key performance indicators and targets for each business unit and system wide. It is also proposed to develop organizational capacity within GRT that would be dedicated to the continued development of the comprehensive performance management system. 3.0 GRT/LRT Integration Plan The successful launch of ION LRT depends on a seamless customer experience during the transition from the existing all-bus system to the future bus-and-rail system. The impact and integration of ION LRT into the regional transit network has been an overarching focus in this Business Plan. Staff continues to work on the many integration issues as detailed in Appendix B and as summarized below: 3.1 Service Integration An integrated transit network anchored on ION LRT requires passengers to conveniently transfer between rail and bus. As part of the LRT project, bus stops were located and constructed in close proximity to LRT stations to minimize transfer walk distances. Bus shelters have a similar design to the LRT station shelter to indicate to customers that the two modes are integrated at the particular intersection. Real-time information displays at the bus stop and LRT station will reassure waiting passengers on the next arrival time. At strategic locations like the University of Waterloo and Fairview Park Mall where many bus routes converge, new passenger facilities are being constructed to ensure Page 13 of 83

14 integration with LRT stations. Passengers will have a short and convenient walk when transferring to LRT or bus, or when accessing nearby destinations. Unique shelter designs, benches and real-time information displays will provide comfort and convenience to waiting passengers Fare Integration The implementation of the EasyGO fare card system will support a One System - One Fare payment system, where customers pay one fare to ride and transfer between all GRT services: conventional bus, ION LRT and ION Bus, MobilityPLUS and BusPLUS. The EasyGO fare card also enables implementation of a proof of payment system for the LRT. Passengers will pay their fare on the LRT platform by tapping their EasyGO fare card on the platform fare validator before boarding through one of many doors on the LRT vehicle. A fare enforcement and awareness program is being developed to support the proof of payment program on the LRT service. Multi-door boarding will minimize dwell times and is a significant operational efficiency that will prove more valuable as ridership levels on LRT increase in the future. 3.3 Station Integration A primary objective of Waterloo Region and area municipal traffic, active transportation, roadway construction and land use planning functions in the coming years will be to gradually improve transit and pedestrian connectivity to the ION stations and to promote the development and growth of station areas. To support these efforts, GRT has created Station Profiles to document existing and planned bus connections, active transportation opportunities and surrounding development and land use patterns at each of the 19 ION LRT stations. The profiles include an inventory of existing conditions and of planned future improvements, as well as recommended improvements to pedestrian and land use features in the station areas. Appendix C illustrates the University of Waterloo station profile. Staff plans to use the station profiles collaboratively with the area municipalities station area planning efforts to identify active transportation network improvements that support access to ION stations and GRT bus stops. The station profiles will also be used to communicate proposed service changes to the public and key stakeholders. Other integration initiatives include promoting the launch of LRT and the integrated GRT network, passenger wayfinding, and a range of coordinated operational and security procedures. 3.4 Charles Street Transit Terminal Transition With the implementation of ION LRT, there will be a reduction in bus routes that pass through the Charles Street Terminal or terminate in downtown Kitchener. Passenger transfers that now occur at the Charles Street Terminal will be distributed among the Page 14 of 83

15 downtown Kitchener LRT stations as shown in Figure 7. Scheduled bus layovers to facilitate passenger transfers and operator personal breaks would be relocated from the Charles Street Terminal to the end of route facilities. New facilities for operator lunchbreaks are being constructed at Conestoga Mall and Fairway stations. Other locations are being considered for operator facilities such as the Block Line station, Conestoga College, Stanley Park Mall and the Sunrise Centre. Some of the existing services and amenities located at the Charles Street Terminal are planned to be located at the Central Station multi-modal hub. GO buses and intercity carriers will have interior on-site bus bays that are weather protected. Walk distance for transferring passengers between the on-site bus bays and on-street GRT/LRT stops will be minimal, and the new GO Train station at the multi-modal hub will also be in close proximity. Other services and amenities at the hub would include customer pick up/drop-off, taxi, ride-sharing, community car share, bike parking, fare product purchases, customer information, public washrooms and security staff. Once the Central Station multi-modal hub is functioning, the Charles Street Terminal can be completely phased out. 4.0 Customer Service Plan Continuous improvement to customer service is fundamental to the success of any service industry, public transit included. Today GRT comes into contact with over 65,000 passengers on an average weekday. The level of customer satisfaction depends on how well GRT delivers reliable and convenient services, including the methods by which it communicates and evaluates those services. Even though almost 80% of riders are either very satisfied or satisfied with GRT services, customers continue to express concern with some areas of the service. Many of the core customer service issues include: improving frequency of service to address overcrowding, increasing the hours and days of operation on select routes, restructuring routes to improve connectivity, schedule reliability and ease of comprehension, and the extension of service to growth areas would be addressed by the proposed service improvements in the GRT Business Plan Other issues like snow clearing of bus stops will continue to be monitored and, if need be, additional resources would be requested through the budget process. GRT has an extensive array of existing customer service programs and initiatives that are focussed on improving the customer experience when using GRT. For example, customers can access real bus time information and all front-line employees receive ongoing customer service training. Also, bus stops are upgraded annually with concrete pads to improve accessibility and with shelters and benches to improve comfort. Existing customer service initiatives provide a solid foundation that enhances the citizen-centred culture embedded in GRT s values and practices and in the service Page 15 of 83

16 employees deliver every day. During the next five years, GRT plans to increase engagement of customers by publishing performance results on a range of service attributes like schedule adherence and bus overcrowding on the website. Also published would be the projects and programs GRT plans to complete in a given year along with status of completion. A more robust customer survey program is planned to assist in identifying initiatives that would maintain the loyalty of existing riders and encourage them to ride more frequently, and to measure customer satisfaction trends. GRT management will be meeting directly with customers in the field to solicit customer feedback first-hand. The Charles Street terminal provides important customer service functions such as fare product sales and travel information. As fewer routes will be using the Charles Street terminal, it is important to establish a secondary customer service location. Ultimately the Central Station multi-modal hub will provide similar customer service functions as the Charles Street terminal does. During the transition period before the multi-modal hub is operational, GRT will be looking to establish a storefront customer service function near the Frederick LRT station. Once the multi-modal hub is operational the need for the Frederick storefront operation will be evaluated. The advantage of maintaining both locations for customer service is some routes traveling through downtown Kitchener only connect with the Central Station and other downtown routes only connect with the Frederick Station. 5.0 Marketing Plan Over the next five years GRT will experience a quantum leap as a competitive travel option for many residents of Waterloo Region as a result of significant improvements to the service including: the start of LRT service, completion of the ixpress network and continued improvement to service levels with a focus on more frequent service, the introduction of new and enhanced passenger facilities and the implementation of the EasyGO fare card system. To leverage the significant regional transit investments, a more extensive marketing program is proposed to keep current customers aware of the many changes and opportunities that can improve their travel experience. More importantly, an expanded marketing program is required to create awareness and entice non-riders to use transit. GRT s proposed new five-year marketing program as detailed in Appendix D includes proposed strategies and activities that would: Create greater awareness and public support of the GRT master brand and its service brands, particularly ION and ixpress Shape stakeholder perceptions of GRT as an organization Establish a rider-centric focus based on the GRT target personas Page 16 of 83

17 Ensure rider loyalty and position GRT as a competitive travel option to attract new customers 6.0 Technology Plan The Region has made a sizable investment in Intelligent Transportation Systems (ITS) infrastructure over the past ten years using tailored commercial off the shelf products, which is a common approach for public transit ITS deployments. Up to $20m in ITS capital infrastructure, software and on-going maintenance costs has been invested over the past decade. Leveraging this investment, integrating other transit initiatives and embracing trends such as open source data, will ensure the continuation of a vibrant, efficient and effective transit system. For the external users (riders, general public, etc.), the focus of ITS is to provide static and real-time traveller information to support trip planning and on-route information. Notifying users of service disruptions, next bus departures and other relevant information, such as service and system changes, allows users to more effectively plan their trips. For internal audiences (Bus Operators, Street Supervisors, Customer Service Representatives, Fleet Supervisors, Transit Development staff, etc.), the focus is to provide GRT employees with the tools and programs to deliver value to riders, improve service effectiveness and efficiency, and maintain the state of good repair of assets. GRT s existing ITS infrastructure includes an extensive array of hardware and software. Major ITS system components currently in use or actively under development are detailed in Appendix E. To leverage more value from GRT s robust technology investment, organizational capacity is required to support four important functional activities: 1) Implementation of quality assurance and preventative maintenance programs for hardware and technical equipment on buses and in the field. Adequate staff support in this functional area ensures work is acceptably completed, and that equipment performs to product specifications. 2) Implementation and maintenance of software applications, system interfaces and integration, upgrades and enhancements. Adequate staff support in this functional area ensures important systems that are interconnected and relied on daily by customers and GRT employees operate effectively and accurately. 3) The research and development of new and emerging technology to address customer requirements and to support the evolution of effective transit service delivery. 4) Implementation, maintenance, development, analysis of many, large volume data sets used internally and for public information. Adequate staff support in this functional area ensures all the traveller information systems provide accurate real-time information to riders and that the automated vehicle location system Page 17 of 83

18 accurately tracks bus locations in real-time. Ongoing development of robust data analytic systems would support the service performance management system Additional staff resources would be requested though the annual budget process. GRT is currently reviewing options for an organizational structure for an ITS group within the Transit Services Division that would best support existing and implementation of new or enhanced ITS applications as identified in this Transit Technology Plan 7.0 Financial Plan The financial operating requirements of the proposed GRT Business Plan are detailed in Appendix F. In order to attain the 2021 RTMP target of 28 million rides, the service improvement strategy forecasts that the amount of service GRT provides would increase by 250,000 annual service hours over the next five years. As a result of the proposed service growth and new operating costs from LRT, operating costs would increase annually. Some of the operating costs increases would be offset by increases in passenger revenue resulting from ridership growth combined with proposed annual fare increases of 2.0%. While the cost-recovery ratio declines during the first several years of the plan, it stabilizes during the last two years. Going forward, the additional capacity provided by LRT, completion of the ixpress network and additional higher frequency routes can accommodate future ridership growth with lower marginal additional costs. It is expected that the financial performance of GRT will continue to improve post 2021 as higher ridership levels using existing service capacity are attained. Seven Year Plan Implementation Scenario When reviewing the financial implications of implementing the proposed 5 year business plan, the Steering Committee supported implementing the service improvements over a seven (7) year period. Rather than expanding the transit system by 50,000 annual service hours, or 5.7% on average annually, it would be expanded by an average of 35,000 annual services hours 4.2% on average annually. Staff will submit a Budget Issue Paper annually for the proposed service expansion. One of the implications of stretching out the implementation of the five year business plan to seven years is that some service improvements would be deferred. As a result, ridership achieved in 2021 would be 27.3 million, short of the 28.0 million ridership target (see Table 3). It is projected that 28.0 million rides would be achieved in Some of the service improvements that could be delayed in implementation include completion of the ixpress network in Cambridge, extension of hours and days of Page 18 of 83

19 operation on selected routes to coordinate with ION LRT and frequency improvements on higher performing routes. Staff will continually monitor route performance, travel pattern and land use changes, to establish new service improvement priorities to be included in the annual service expansion plan of 35,000. Each year staff would compare actual budget approvals to the business plan recommendation for service growth to determine the degree of deviation from achieving the 2021 RTMP 28 million ridership target. Table 3: Projected Ridership and Financial Performance of 7 Year Plan Service Hours 2016 Actuals TOTAL 762, , , , , ,000 LRT ,000 55,000 55,000 57,000 BUS 762, , , , , ,000 Ridership (millions) Operating Cost (millions) $82.2 $88.9 $106.3 $119.3 $127.9 $135.7 Passenger Revenue $31.4 $32.4 $35.7 $40.1 $44.4 $48.0 (millions) System Revenue $32.2 $33.2 $36.5 $40.9 $45.2 $48.8 Net Operating Cost $50.0 $55.7 $69.8 $78.4 $82.7 $86.9 Net Operating Cost per Rider $2.58 $2.82 $3.25 $3.29 $3.21 $3.21 Revenue/ Cost Ratio 39.2% 37.3% 34.3% 34.3% 35.3% 36.0% Note: Operating costs in this table exclude debt servicing, reserve contributions and the financing and life cycle components of the projected monthly service payments to GrandLinq Page 19 of 83

20 Table 4: Capital Requirements ($ s million) Total Peak Buses + (Spares) 15+(3) 0 5+(1) 10+(2) 10+(2) 40 +(8) Expanded Bus Fleet Costs $9.00 $3.15 $6.3 $6.3 $24.75 Passenger/Driver Facilities: 1) Conestoga College 2) Sunrise Centre Station Development 206 Coronation ixpress $1.0 $3.0 $4.0 $0.9 $0.9 $1.35 $ ixpress extension Customer Service Storefront Conestoga Mall Transit Facility Upgrade $0.25 $0.25 $0.50 $0.05 $0.45 $0.50 Transit Technology $0.925 $0.4 $0.35 $0.905 $2.58 Transit Facility Design Guidelines $0.05 $0.05 $0.10 Transit Wayfinding Plan $0.05 $0.05 Total $9.00 $3.225 $8.4 $6.9 $7.205 $34.73 Staff recommend including all capital requirements set out in the GRT Business Plan in the draft GRT Capital Program. Approval of such investments will be subject to annual budget approval. Through the 2018 Regional Budget process the cost profile for expansion buses will also be updated to reflect higher vehicle purchase costs. The 18 expansion buses for 2017 have been approved for 50% federal funding under the Public Transit Infrastructure Fund (PTIF) program. All approved updates to the GRT capital plan will be factored into the development of the next Regional Development Charge Background Study anticipated in It is expected that a significant portion of the planned investment in GRT growth related capital will still be required to be funded from future property taxes. Staff will continue to Page 20 of 83

21 monitor federal and provincial funding announcements for alternate capital funding sources. Future announcements are expected with respect to Phase II of the Public Transit Infrastructure Fund (PTIF) and the possibility of increased Provincial Gas Tax funding which can be incorporated into the GRT capital funding strategy, if appropriate. 8.0 Next Steps The proposed 2021 Transit Network and annual service improvement plans will be subject to further public consultation and the annual budget process and Council approval. To date, public feedback has been received at several events: University of Waterloo Transit Plaza Public Information Centre ION Community Open House ION Phase 2 Consultation Centres City of Kitchener Planning Around Rapid Transit Stations (PARTS) Public Information Centre In general, comments have been supportive of the proposed changes to the transit network. The next round of public consultation would occur in late September and October of this year, with the primary focus being on the proposed transit network changes that would be implemented when the ION LRT is to begin revenue operations in late spring Proposed service changes for September 2018 would also be displayed for feedback with a note that any potential implementation would be subject to approval of the 2018 Regional Budget. Staff plan to provide an information report to the September 12, 2017 Planning and Works Committee meeting regarding the Fall 2017 public consultation process. Corporate Strategic Plan: Supports the implementation of Council s Strategic Focus area objective 2.1: Create a public transportation network that is integrated, accessible, affordable and sustainable. Financial Implications: The financial implications of delivering the proposed increase of 250,000 annual service hours over seven years (190,000 service hours in five years) are detailed in Table 5. The incremental tax levy to fund the seven year implementation plan to 2021 is estimated at $6.8 million. In comparison, the tax levy impact of providing an additional 250,000 service hours in five years is estimated at $10.17 million by 2021, an increase of $3.37 million compared to the seven year plan Page 21 of 83

22 Table 5: Financial Implications of 7 Year Plan ($ s 000) Additional Service Hours (1) New Service Variable Operating Costs Annualized Variable Operating Costs New Ridership Revenue Incremental Net Operating Costs Incremental Debt Service Incremental Bus Replacement Contributions Fare Change Revenue (2) Incremental Levy Impact Total 32,000 35,000 18,000 35,000 35,000 35, ,000 $1,360 $2,030 $990 $1,020 $1,040 $6,440 $1,390 $2,540 $2,050 $2,090 $8,070 ($150 ) ( $710 ) ( $1,360 ) ( $1,690 ) ( $1,620 ) ($5,530) $1,210 $2,710 $2,170 $1,380 $1,510 $8,980 - $330 - $240 $480 $1,050 - $720 - $240 $480 $1,440 ($550) ($900) ($970) ($1,080) ($1,180) ($4,680) $660 $2,860 $1,200 $780 $1,290 $6,790 (1) 2017 budget approved 32,000 of 50,000 in additional service hours (bundles 1 & 2 from issue paper). An additional 18,000 service hours (bundle 3) for Ottawa ixpress were approved to be added to the 2018 GRT base budget with service commencing in the spring (2) Includes 2% annual average fare increase July 1 and 4.99% annual U-Pass increase Page 22 of 83

23 Other Department Consultations/Concurrence: The GRT Business Plan Steering Committee includes staff from the Rapid Transit, Transportation and Finance Divisions, and included Councillors Elizabeth Clarke, Karl Kiefer and Sean Strickland. Attachments Figure 1. Proposed 2021 Transit Network Kitchener-Waterloo Figure 2. Proposed 2021 Transit Network Cambridge Figure 3. ixpress Network Figure 4. Proposed September 2017 Service Improvements Kitchener-Waterloo Figure 5. Proposed September 2017 Service Improvements Cambridge Figure 6. Proposed Transit Network Changes in 2018 Figure 7. Bus-ION service in Downtown Kitchener Appendix A: Service Improvement Plan and Ridership Growth Strategy Appendix B: GANTT Chart - ION Integration Task List Appendix C: Example University of Waterloo ION Station Profile Appendix D: Marketing Program Strategies and Activities Appendix E: Intelligent Transportation System Major Components Summary Appendix F: Projected Ridership and Financial Performance of 5 Year Plan Prepared By: John Cicuttin, Manager Transit Development Eric Gillespie, Director Transit Services Approved By: Thomas Schmidt, Commissioner Transportation and Environmental Services Page 23 of 83

24 Figure 1 Proposed 2021 Transit Network Kitchener-Waterloo Page 24 of 83

25 Figure 2. Proposed 2021 Transit Network Cambridge Page 25 of 83

26 Figure 3. ixpress Network Page 26 of 83

27 Figure 4. Proposed September 2017 Service Improvements Kitchener-Waterloo Page 27 of 83

28 Figure 5. Proposed September 2017 Service Improvements Cambridge Page 28 of 83

29 Figure 6. Proposed Transit Network Changes in Page 29 of 83

30 Figure 7. Bus-ION service in Downtown Kitchener

31 Appendix A Service Improvement Plan and Ridership Growth Strategy Transit Network GRT is planning annual service improvements between 2017 and 2021 to increase ridership based on three key principles: 1) Completing the ixpress network of limited-stop bus routes; 2) Realigning routes to more of a grid network, focused on ION stations; and 3) Providing frequent service on high ridership routes. These principles reflect three of the six key initiatives in GRT s New Directions Ridership Growth Strategy, shown in the image below. They also support the initiatives to provide seamless connections to ION and to provide more comfortable stops and stations. Expansion is also being planned to serve new growth areas and the rural townships. The draft 2021 Transit Network is shown in Figures 1 and

32 Figure 1: Proposed 2021 Transit Network Kitchener-Waterloo Page 32 of 83

33 Figure 2: Proposed 2021 Transit Network Cambridge Page 33 of 83

34 More ixpress Routes The ixpress network was developed to provide frequent, limited-stop service along major travel corridors, connecting with ION stations. These routes provide faster, more direct service between key destinations in the Region. Large shelters, bicycle racks, and real-time passenger information displays are provided at as many stops as possible to enhance the rider experience. Together with ION LRT and ION Bus, these routes would provide frequent, express transit along many of the crosstown corridors in the Region, serving over 133,000 current residents by 2018 or about 30% of the service area population, as shown in Figure 3: Figure 3: 2018 ixpress and ION Service Coverage Page 34 of 83

35 New and extended ixpress routes proposed to be implemented by 2021 include: 205 Ottawa ixpress, serving the Ottawa Street corridor between Sunrise Centre and Lackner Boulevard, connecting to Mill and Borden stations (2018), with a possible extension to Trussler Road (2021); An extension of the 201 Fischer-Hallman ixpress to Block Line Station and Conestoga College, via Block Line Road, Manitou Drive and Homer Watson Boulevard (2018); An extension of the 200 ixpress with branded buses (ION Bus) to the South Cambridge Shopping Centre (2018); and 206 Coronation ixpress, serving the King-Coronation corridor between Fairview Park Mall and West Galt, connecting to Fairway Station (2019). The complete ixpress/ion network is shown in Figure Page 35 of 83

36 Figure 4: ixpress Network Page 36 of 83

37 More Direct Routes The implementation of ION and the corresponding completion of the ixpress network will enable the continued realignment of local routes to create a more grid-like pattern connecting with ION and ixpress. With ION providing frequent service in the Central Transit Corridor (CTC) and ixpress routes providing frequent service in complementary crosstown corridors, local routes can be restructured to minimize duplication of service and provide more direct service, thereby improving efficiency and travel time for most riders. 1.3 More Frequent Service Frequent service is a key ridership growth initiative that can also address overcrowding conditions on busy routes. Today, only three GRT routes operate at a peak period headway of 10 minutes or better (7 Mainline, 9 Lakeshore, and 200 ixpress). It is proposed by 2021 that seven GRT routes, in addition to ION LRT, operate with 10- minute-or-better peak service, as shown in Figure 5: Figure 5: GRT 10-minute Peak Service Page 37 of 83

38 To foster increased ridership growth and support ION, it is recommended that during the life of this Business Plan GRT study the implementation of a comprehensive Frequent Service Network. A frequent route is commonly defined as having headways of 15 minutes or better, at least six days a week, for twelve hours a day. Expanding the geographic reach of frequent service across the Region, including more frequent service at off-peak times would be integrated with new marketing and customer navigation initiatives. Other mid-sized municipalities with rapid transit have implemented or are in the process of implementing frequent networks to complement their rapid transit line(s), including York Region, Ottawa, Portland, Salt Lake City, and Minneapolis. 2.0 Proposed Annual Service Improvements ( ) The following section outlines the proposed annual service improvements between 2017 and 2021 that are required to complete the 2021 Transit Network. The staging of annual service improvements is based on ION LRT beginning revenue service in late Spring Route alignments will be finalized through the annual service plan process, based on public feedback and detailed technical analysis, then presented to Regional Council for consideration during the annual budget process. The table below summarizes the proposed annual service improvements between 2017 and A more detailed description of proposed service improvements for each year follows the summary table Page 38 of 83

39 Proposed Annual Service Improvements (Table 1) Time Improvements Period 2017 Frequency improvements Cambridge Centre Station New midday service Alternative Service Delivery Pilot (Approved in 2017 Budget based on Preliminary Business Plan report, August 2016) Early Central Transit Corridor route restructuring 2018 Southwest Kitchener Phase 1A North Waterloo UW Transit Station Ottawa Street Corridor 205 ixpress introduced Fall 2018 Existing Routes Affected* 10, 27, 51, 52, 56, 57, 61, 75, 110, 200, 201, 202 ixpress 1, 2, 3, 4, 7, 8, 9, 11, 12, 13, 14, 16, 20, 22, 23, 27, 29, 31, 33, 73, 78, 92, 200, 201, 204, 205 ixpress Southwest Kitchener Phase 1B 10, 61, 110, 116, 201 ixpress Fall Completion of ixpress network 200 ION Bus extended in Cambridge 206 Coronation ixpress introduced Cambridge Phase 1 Galt, Preston Southwest Kitchener Phase 2 Cambridge Phase 2 Preston, L.G. Lovell Industrial Park, Cambridge Business Park Northwest Waterloo Phase 2 Complete transition of routes from Charles Street Terminal to Downtown Kitchener ION stations Frequency Improvements Additional services to new growth areas and the Townships * Route numbers may change as route revisions are made 51, 52, 53, 54, 55, 57, 58, 59, 61, 62, 63, 111, 200 ION Bus, 206 ixpress TBD Page 39 of 83

40 Service Plan Service improvements in 2017 comprise four areas, and are shown in Figures 6 and 7: Frequency improvements on high-ridership routes, to address overcrowding and encourage ridership growth: Routes 10 and 110 (which travel between Fairview Park Mall and Conestoga College), and the 201/202 ixpress. Midday service reintroduced to Routes 27 Chicopee and 57 Blair Road on weekdays. This would reverse service reductions made in 2014, improving transit accessibility to Freeport Hospital in the summer months and to West Galt yearround. Alternative transit service delivery pilot program for a lower-demand area to be determined (see Applications for Alternative Service Models section for detail). During the 2017 Regional Budget process, the implementation of the 205 Ottawa ixpress was deferred from September 2017 to April Page 40 of 83

41 Figure 6: Proposed 2017 Service Improvements - Kitchener-Waterloo Page 41 of 83

42 Figure 7: Proposed 2017 Service Improvements Cambridge Page 42 of 83

43 Proposed Late Spring 2018 Service Plan (for launch of ION LRT) The proposed 2018 Transit Network would be implemented with the launch of ION LRT, and involves the restructuring of routes to more directly connect with ION stations and minimize duplication of service. Most routes in the Central Transit Corridor (CTC) and Southwest Kitchener would be modified at this time. Major changes in the CTC (and adjacent areas) include: 200 ixpress revised to operate from Fairway Station to Ainslie Street Terminal only, and re-branded as ION Bus with new vehicles. o Service between Conestoga Mall and Fairway would be replaced by ION LRT. Route 7 Mainline streamlined from Fairway Station to Conestoga Station via King Street and Connaught Street. o Branches to the University of Waterloo (7D, 7E) would be replaced by ION LRT and increased service on the 201 and 202 ixpress. o A less-than-10-minute headway would be provided all-day on weekdays between Conestoga Mall and Downtown Kitchener. The King Street corridor between Uptown and Conestoga Mall continues to intensify through redevelopment, and will require a high level of service. A frequent Route 7 and ION are envisioned as complementary, core services that would provide an attractive and competitive alternative to auto travel in the CTC. o Route 7 would continue to provide access to areas in the CTC beyond the catchment of ION stations, which currently produce approximately 1,100 daily boardings. Route 9 Lakeshore split into two routes, to provide more direct service. One route would serve the David Johnston Research & Technology Park and McCormick area; the other route would serve the Hazel Street corridor. The McCormick and Hazel areas are high ridership neighbourhoods that will no longer be served by the 200 ixpress and are beyond the catchment area of an LRT station. As a result, a high frequency of service on both local routes would be provided. This route would also provide service to the West Ring Road. New direct route on Weber Street from University Avenue to Fairway Road, connecting with Fairway Station and additional ION stations in Downtown Kitchener. This would replace portions of routes 4, 7 and 8, streamlining service in this major corridor parallel to ION Page 43 of 83

44 Some downtown routes (eg., Route 1 and 204 ixpress) would bypass Charles Street Terminal and facilitate transfers at the Central, Queen, or Frederick stations. Charles Street Terminal will continue to be used by intercity bus operators, including GO, Greyhound and Coach Canada and some GRT routes until the multi-modal hub at King and Victoria Streets is operational. In Southwest Kitchener, routes would be realigned to connect to several ION stations. With a focus on connections at these locations, the Forest Glen Terminal will become redundant. Highlights include: Expanded local service to the Huron Village/Rosenberg communities. More direct service between the Huron Business Park and ION LRT. Extension of the 201 ixpress along Block Line Road to Courtland Avenue. Implementation of the 205 Ottawa ixpress, which would provide a missing link connecting southeast and southwest Kitchener, integrating with ION LRT at Borden and Mill stations. University of Waterloo Transit Plaza Routes 9, 13, 31, 200 and 201 ixpress would be realigned to serve the new multi-modal transit station at the University of Waterloo. These routes would then be integrated with the University of Waterloo ION station. Combined, the restructuring of CTC routes, Northwest Waterloo, and Southwest Kitchener routes would be completed in late spring 2018 without the addition of service hours or peak buses, through the reallocation of existing service. The reallocation of existing service would also fund the implementation of 10 minute peak frequency on the 201 and 202 ixpress lines. The streamlining of Route 7 and cancellation of the 200 ixpress between Conestoga and Fairway would make 22 peak buses and approximately 60,000 service hours available, which would be redeployed to provide the resources necessary to support the service changes described above Page 44 of 83

45 Figure 8: Proposed Network Changes in Page 45 of 83

46 Proposed Fall 2018 Service Plan The proposed service changes for September 2018 relate to improved service to Conestoga College and to better integrate with ION LRT level of service (Figure 8). Highlights include: Routes 10 Conestoga College more direct service between Fairway Station and Conestoga College 201 ixpress extend from Block Line Station to Conestoga College, replacing the current Route 116 College express with frequent, all-day service. Extend hours of operation and frequency of service on selected routes to coordinate with ION LRT level of service. Contingency hours to respond to service gaps, operational issues and increased ridership demands due to impact of ION LRT. Taken together with the ION launch improvements in Southwest Kitchener, these route changes would represent the completion of Phase 1 of transit improvements in this area of the Region. Further route extensions (and possible frequency improvements) are proposed in the draft 2021 Transit Network to serve new development/growth areas, such as Rosenberg and Doon South. The September 2018 improvements are shown in Figure 8. Proposed Fall 2019 Service Plan Service changes in 2019 would focus on completing the ixpress network, by implementing the 206 Coronation ixpress along with an extension of ION Bus service in Cambridge. The Coronation ixpress would provide a frequent, direct link between West Galt, Preston, Sportsworld and Fairway Station, providing a one-seat ride to ION LRT for some of the most dense, transit-supportive areas of Cambridge. An extension of ION Bus to the South Cambridge Shopping Centre would connect East Galt directly to Hespeler Road, also providing a one-seat ride to ION LRT at Fairway Station. This would reduce transfers at Ainslie Street Terminal, and provide frequent service to additional areas of Cambridge. Many of the local routes in Cambridge would also be restructured at this time to connect with ION Bus stations, provide more of a grid network, reduce duplication with the Coronation ixpress, and improve hours of operation (Cambridge Phase 1). For example, with the introduction of the 206 Coronation ixpress, Route 52 would no longer have to travel to between Galt and Kitchener. Route 52 would be transformed into a local route connecting Galt, the Cambridge Memorial Hospital and the new Cambridge Centre transit passenger facility where numerous routes serving Hespeler, Preston and Page 46 of 83

47 east Galt converge. The route 24 GO Bus to Milton also stops at the Cambridge Centre. Similarly, with the extension of the 200 ixpress along Cedar Street in southwest Galt and along Concession Street/Main Street in southeast Galt, most of the local routes would be restructured to complement the 200 ixpress extensions. Proposed Fall 2020 and 2021 Service Plans Any changes proposed for that were not fully implemented would be programmed for this time period. In addition, the following improvements are contemplated on a conceptual level and are subject to further refinement: Route extensions to serve further development of the Rosenberg and Doon South communities (Southwest Kitchener Phase 2). Streamlined, two-way service through Preston, the L.G. Lovell Industrial Park, and Cambridge Business Park (Cambridge Phase 2). Route 31 Columbia extension to serve the development of the Clair Hills community (Northwest Waterloo Phase 2). Complete permanent transition of routes from Charles Street Terminal to Downtown Kitchener ION stations, including the new King Victoria Transit Hub. Additional frequency improvements on priority routes across the network. Additional services to new growth areas and the Townships described in more detail in the Alternative Service Models section. 3.0 Recommendations 1. That the transit service improvements detailed in Table 1 be further developed through the annual service plan process and presented to Regional Council for consideration during the annual budget process prior to implementation. 2. That staff continue to develop the concept of a Frequent Service Network (routes with 15 minute or better service frequency). A new route classification system would be evaluated and setup to introduce new service types, route numbers and a clearer customer navigation system to complement and support ION. Applications for Alternative Service Models 1.0 Introduction and Background Historically, the Region has endeavoured to provide conventional, fixed-route transit service within 450 metres to 95% of residents, places of work, and public facilities in the urban municipalities. This service coverage standard has not been met, with the current network providing coverage for 87.5% of residents in the urban area. There are several reasons why achieving 95% service coverage with fixed-routes has been challenging and not necessarily desirable. These include: indirect, circuitous route Page 47 of 83

48 patterns; less efficient, lower-performing service; and fewer resources for service along main corridors where transit is more competitive. Areas that are challenging to serve with conventional transit service are the result of numerous factors such as 1) lack of a fine-grid of arterial and collector roads 2) neighbourhoods with circuitous street patterns, cul-de-sacs and limited number of connecting streets to back-lotted arterials, 3) lack of sidewalks and large building setbacks from roadway 4) physical barriers such as rivers, highways and extreme grades 5) lower-density and new growth areas, and 6) areas with senior s buildings (or other transit-dependent facilities) located away from major corridors. Alternative transit service delivery models should be explored for isolated transitdependent facilities. Opportunities to retrofit sidewalks, roadway and walkway links that improve access to transit service should be pursued. In addition, staff will continue to work with Regional and municipal planners to ensure future development be designed be in closer proximity to existing and planned transit routes. Taking the above into account, GRT will continue to use the 450 metres walk distance as a guideline for conventional service, but not a service standard. This does not preclude GRT from serving areas of lower population/employment density; however, fixed-route services will be focussed in areas with densities that can generate sufficient ridership and alternative service models will be considered for other areas as described below. 1.1 Network Redesign During the last five years, implementation of additional ixpress routes along major corridors and the streamlining of local routes to travel more directly and frequently on arterial and collector roads has proven to be a more effective ridership growth strategy than trying to increase service coverage by deviating routes on local neighbourhood roads. Past experiences in other jurisdictions has shown that focusing service on existing high-ridership corridors and areas with high transit propensity (based on density, development pattern and demographics) results in higher ridership. This strategy has resulted in certain pockets of development being beyond a 450-metre walk to transit, as shown in Figure Page 48 of 83

49 Figure Network Coverage within 450m and Unserved Areas *Remainder areas include: non-built-up areas, rural land within the urban municipalities, surplus land around expressways, the roadway network, and sparsely populated areas 1.2 Street Network and Community Design While route design plays a role, longer walks to service can also occur due to the design of the street network and orientation of development. Subdivisions where street patterns are circuitous, cul-de-sacs proliferate, and there are a limited number of connections to back-lotted arterials make access to and provision of efficient transit challenging. This style of roadway layout hinders or prevents transit vehicles from accessing developments. A number of subdivisions within the urban area lack a complete and connective pedestrian network. Pedestrian access from the interior of neighborhoods to transit stops is limited, and walk distances are lengthy, even though a transit stop may geographically be in close proximity. Figure 10 illustrates one such subdivision in West Kitchener Page 49 of 83

50 Figure 10 Challenging Subdivision and Street Design for Transit 1.3 Low-Density and New Growth Areas There are also existing built-up areas where low residential or employment densities do not support a fixed-route service, and new growth areas where development (and the street network) is not built-out enough to deliver cost-effective service. These areas typically have a density of less than 5,000 people and jobs per square kilometre. In addition, new growth areas where additional urban development is slated to occur have been identified in this Business Plan. Some are planned for new or expanded service between 2017 and 2021, while others would be served beyond 2021: Page 50 of 83

51 New Growth Area Description of New Service Proposed by 2021 Beaver Creek Meadows (Waterloo) Branchton Park (Cambridge) Chicopee/Sims Estate (Kitchener) Clair Hills (Waterloo) Creekside (Cambridge) Doon South (Kitchener) Erb West (Waterloo) Hunt Club (Cambridge) Kiwanis Park (Waterloo) Rosenberg (Kitchener) Tartan/Rockcliffe (Kitchener) UW Northwest Campus (Waterloo) Westview (Cambridge) West Laurentian West (Kitchener) TBD - contingency hours included in 2021 Network costing Revised conventional route with service on Dundas between Franklin and Champlain Route 27 turn-around at Chicopee Ski Hill rather than Quinte/Morrison Route 31 extension via Sundew, Autumn Willow New or revised BusPLUS service Conventional route extension via Strasburg Road, Robert Ferrie, Doon South, Thomas Slee, New Dundee TBD - contingency hours included in 2021 Network costing Beyond 2021 TBD - contingency hours included in 2021 Network costing Local route extension via Seabrook, Ludolph, Huron New express service on Fischer-Hallman south of Westmount to Huron Conventional route extensions on Strasburg, Huron TBD - contingency hours included in 2021 Network costing Beyond ixpress extension to Trussler Page 51 of 83

52 Location of Transit-Dependent Facilities Transit-dependent facilities such as apartments, medical facilities, large employers or seniors complexes should be located on or within close distance to major transit nodes and corridors in order to be served effectively and efficiently. Unfortunately, when they are located in challenging or low-density areas as described above, the ability to provide cost-effective fixed-route transit service becomes limited. Figure 11 illustrates seniors facilities throughout the urban municipalities of the Region. The majority are directly adjacent to or near transit service, and residents, employees and visitors benefit from the close proximity to transit. There are a few of these facilities, however, that are located in these challenging areas beyond a 450-metre walk to transit. Figure 11 Seniors Housing and Transit Service in the Urban Municipalities In order to serve these challenging areas and facilities that are outside walking distance to or challenging to serve with conventional transit in a more cost-effective, efficient manner than fixed-route service, alternative service delivery options need to be considered. Figure 12 illustrates these challenging areas relative to higher-density parts of the urban area Page 52 of 83

53 Figure 12 Challenging Areas to Serve by Potential Service Concepts Providing closer transit access to the areas described above while avoiding the inefficient deployment of fixed-route transit services will require a toolbox of transportation alternatives that GRT can employ beyond reasonable walking distance of existing or planned conventional routes. Five possible alternative transportation service delivery models that could be introduced in these areas include: 2.1 Community Bus Route GRT currently operates one route that could be classified as a community bus Route 77 Wilmot, which operates between New Hamburg and the Boardwalk. There are several important characteristics of a community bus model that could serve as a template for other lower-density areas within the urban municipalities. First, the route is a pilot service funded through a grant. This allows GRT to test out the route with limited impact on other services. Second, it is customized to a specific time of day and travel pattern, based on the demands of the area. Third, a flex-route option is offered, in which the bus may deviate within a set area to drop-off and pick-up customers who are not directly on the route alignment. Finally, it operates with a smaller vehicle instead of a conventional bus. These operational characteristics could be implemented as necessary in other lowdemand, low-density areas to connect riders to the core GRT network. The flexibility of the community bus model means services can be customized to the individualized Page 53 of 83

54 needs of a community, which minimizes operating costs. For example, in a community where the primary need is transportation for seniors and disabled people to attend daytime activities, go shopping or attend medical appointments, routes that operate only in the midday period (from approximately 10:00 am to 3:00 pm) may be appropriate. Further to this concept, the same bus could serve two, three or more communities on different days during the week. Assuming a cost of $72 per hour for GRT busplus service, a community bus option could potentially be operated for as little as $1,800 per week, or $93,600 per year for the operation of a route five hours a day, Monday through Friday. 2.2 Home-to-Hub This model offers door-to-door pick-up of customers in a specified area with a 24-hour or subscription reservation, similar to MobilityPLUS. The service will transport the customers to the nearest conventional transit hub or terminal where they can transfer to other bus routes to complete their trip. Trips are provided by specialized transit buses and operators, and are scheduled and dispatched along with specialized trips over the course of the day. It is potentially more convenient than a community bus route, as it can be scheduled to arrive at a pre-arranged time (as opposed to operating on a fixed schedule) and comes directly to the customer s door. Oakville Transit currently operates services in some newer communities with this model. The cost of service would depend on the number of trips operated from each area. However, at an average cost for paratransit trips of about $30 per day, areas that generate 20 trips per weekday could be offered within each area for about $150,000 per year. 2.3 Subsidized Taxi Many transit agencies in North America have entered into co-operative agreements with taxi operators to offer subsidized services to potential transit customers that need service in lower-demand areas or times of the day. Trips originating or ending within certain areas would be designated as eligible, while others would not. This concept has three elements: regulation of the service provided, negotiation with the taxi provider to achieve favourable rates for transit users, and setting subsidy rates to the taxi company. Because the transit agency is providing the taxi company with the opportunity to carry additional trips each year and guarantees payment on a lump sum basis, the agency may be able to negotiate lower rates or other concessions on trips which will allow them to provide more service. Customers can be required to pay a part of the cost of the taxi trip in much the same way as they pay the transit fare. GRT has experience with this model through the taxi scrip program for MobilityPLUS clients. Costs would be dependent on the number of trips provided, the regulation of trip lengths Page 54 of 83

55 and times, and the prices arranged with the taxi providers. However, average subsidy amounts are unlikely to exceed $20 - $30 per trip, potentially making such a service cost effective in areas where trips are generated daily. 2.4 Ridesharing Services like Uber and RideCo are a relatively new transportation option similar to taxis, but provided by Transportation Network Companies (TNCs). These services are summoned (and paid for) using a mobile phone app. Those who drive are generally not professional drivers, and perform the service on an ad-hoc basis. Prices of ridesharing services are generally lower than comparable trips using taxis. However, they use a demand-based pricing system, in which customers pay higher prices for trips during periods of peak demand. There may be opportunities to integrate these services with public transit, such as supplementing transit service in locations and during periods when it cannot be provided efficiently. Most of the issues concerning the regulation, negotiation and subsidies discussed above with regard to taxi service also apply to ridesharing, with some additional caveats. Users must have smartphones and credit cards in order to use them. Many GRT customers, particularly elderly and lower-income users may lack one or both of these amenities. Transit agencies in other areas are exploring ways to overcome these issues. For example, transit agency dispatchers could potentially book trips on behalf of customers that have access to standard telephones but not smartphones. Customers without credit cards could potentially set up pre-paid accounts with the transit agency or be billed by the agency as part of a larger integrated fare payment scheme to avoid the impediment of credit card payment. 2.5 Partnership with Volunteer Transportation Services Volunteer-run, community organizations such as Community Support Connections (CSC) currently offer escorted transportation for seniors or adults with a disability to attend medical or daily living appointments in the Region. The cost for the user is about 50% greater than a transit fare. Benefits of this model are that door-to-door service can be provided, passenger assistance is offered, and these service providers are well established in the community. There would also be no cost to the Region to implement this service. However, there would be no on-demand, spontaneous trip making, which is possible with a fixed-route transit service. Staff recognizes that there are more alternative models than the five described above. To address this and develop internal buy-in and support for new service models, staff plan to hold a workshop over 1-2 business days in early 2017 to consider innovative ways to meet community and user needs within lower-density, challenging areas. The workshop will be made up of a diverse cross section of staff from various departments and divisions to avoid a siloed approach, encourage innovative thinking, and ensure different viewpoints on service provision are considered Page 55 of 83

56 Application to Challenging Urban Areas As described above, challenging areas to serve within the urban municipalities include the following: Areas outside the redesigned grid network by 2021 Areas with a transit-prohibitive street network/community design Low-density areas that could not support regular bus service New growth areas Senior s buildings or other transit-dependent facilities located outside major corridors 3.1 Prioritization of Areas Because there are multiple areas in all three urban municipalities of the Region that are outside walking distance to transit, and limited resources to serve them all, staff have developed a prioritization matrix to catalogue and prioritize areas for alternative service model implementation as part of the Business Plan. Unserved areas that currently exist or that would exist with the implementation of the draft 2021 Transit Network are considered. These areas include established urban neighbourhoods that are beyond the walk distance standard due to realignment of routes, that never had GRT service, and new growth areas that are currently developing. Areas can be prioritized for service based on various service, density and demand criteria, including: residential and employment density, presence of a seniors facility, customer requests for service, and whether a future conventional route is planned in the draft 2021 Transit Network. Primary or A priorities would become candidates for higher-order alternative service models, such as a community bus route. Secondary or B priorities would become candidates for a more on-demand alternative service model such as subsidized taxi or ridesharing, as discussed above. Areas that do not meet the prioritization criteria would not be considered for transit service, including alternative service models. 3.2 Recommended Pilot Service Areas The approved 2017 Regional Budget includes funding for an alternative service delivery pilot program. Staff have engaged a consultant to assist in the development of the pilot which subject to Council approval would be implemented in Fall The following four Priority A areas (Figure 13) would be evaluated to determine the feasibility of implementing an alternative delivery service pilot. Additional locations may be included during the study process. Implementation will be subject to the funding amount approved in the 2017 budget and any additional implementation of alternative service delivery options would be subject to future budget approvals Page 56 of 83

57 Columbia Forest in Waterloo (roughly bounded by Erbsville Road, Columbia Forest Boulevard, Munich Circle and Columbia Street) Highland West/Blackwell in Kitchener (roughly bounded by Blackwell Drive, Westheights Drive, and Victoria Street) Trinity Village/Kingsway in Kitchener near Fairview Park Mall, Kitchener Central Hespeler in Cambridge (roughly bounded by Rife Avenue, Cooper Street, Gunn Avenue, and Franklin Boulevard) Figure 13 Four Priority A Areas for an Alternative Service Delivery Pilot Program in 2017 These areas have: a residential and employment density to support a minimum level of transit (2,500 persons and jobs per square kilometre by 2021); a population greater than 1,000 outside the walk distance to transit, once the proposed 2018 network changes take place; no fixed-route conventional service planned in the draft 2021 Transit Network; a seniors facility present; and rank in the top 50% of areas by number of customer requests for new service Page 57 of 83

58 Application to Townships In addition to providing transit service to the urbanized portion of Waterloo Region, GRT also has jurisdiction to provide fixed-route service in the townships. The township areas are predominately rural, and have population and employment densities far below the levels to warrant fixed-route service. However, each of the townships contain one or more settlement areas former villages and hamlets developed to serve farming communities in the 19 th and early 20 th centuries, located at rural crossroads, some of which have grown significantly with suburban-style development over the past sixty years. These locations have significant localized densities and in some cases contain nodes of employment, and a portion of their population is transit-dependent or exhibit high transit demand. Unfortunately, they are separated from the contiguous urban area of higher densities by a significant distance over which there is little or no development density. When the low density of this area to be traversed is averaged with the higher density of the proposed area to be served, the average density is usually well below the level that would be required operate transit service efficiently. The potential transit demand between these settlement areas and the urbanized area (and within the settlement areas themselves) does not always support a fixed-route GRT service. Alternative service delivery strategies can more efficiently serve settlement areas, providing a basic level of transportation connectivity to the rest of the region. In addition, social changes including the aging of the population, immigration and increasing economic polarization, means that transit demand in these areas is likely to increase in coming years. The alternative service models described in the section above will be considered for implementation in the townships in addition to the urban areas. However, there is a separate process for implementing township service due to the area-rating of transit services. 4.1 Existing Services GRT currently operates two routes that serve portions of the townships: Route 21 Elmira - Conestoga Mall Route 77 Wilmot These routes operate differently, as described below. Route 21 Elmira-Conestoga Mall connects Elmira and St. Jacobs in Woolwich Township to the Conestoga Mall transit terminal in Waterloo. At Conestoga Mall, it meets a number of other GRT routes: 6, 7, 9, 12, 14, 31, and the 200, 201 and Page 58 of 83

59 ixpress. The route also will meet ION LRT at its northern terminus when ION begins service in Route 21 provides regular local bus service operating at a half-hour headway during the peak period, and hourly during the midday period on weekdays. The service operates from around 6:00 AM to 7:00 PM. Saturday service is every 30 minutes during the morning and afternoon periods, and every 40 minutes during the midday period, operating from about 7:00 AM to 4:00 PM. There is no service on Sundays. On Thursdays during summer months when the St. Jacobs Market is open, the route operates from St. Jacobs to Conestoga Mall every 15 minutes during the midday. Route 77 Wilmot connects new Hamburg, Baden, and Petersburg in Wilmot Township to The Boardwalk transit terminal in Kitchener. At The Boardwalk, it meets a number of other GRT routes: 1, 4, 5, 13, 20, 29, and the 202 and 204 ixpress. The route runs a limited schedule during the peak period, operating three trips in each direction between 7:00 AM and 10:00 AM and four trips between 2:30 and 7:30 PM. Two of the key benefits from this service are allowing students from Waterloo Oxford District Secondary School to travel into Kitchener-Waterloo after school to access activities and part-time jobs, and providing access to and from the city for medical appointments for seniors in the New Hamburg-Baden area. Route 77 uses the busplus service model for providing trips to lower-density areas. The route also features some community bus components, such as flex routing, which allows it to serve the lower-density areas of the route effectively. Flex routing is offered in designated areas off the main alignment, including the Boardwalk Medical Centre, Forrest and Hincks, Stonecroft, Nithview, Morningside and the Wilmot Recreation Complex. Flex routing allows the bus to travel off the main route to pick up passengers who call ahead to request service; these areas are shown in Figure 14 below. Riders can call the same day for flex routing requests from 8:00 AM to 5:00 PM. Flex route stops are clearly marked, indicating that they are serviced upon request only Page 59 of 83

60 Figure 14: Map of Route 77 Wilmot with Flex Routing Areas Another element is the use of smaller, accessible paratransit vehicles more appropriate for lower passenger loads. The vehicle type used by Route 77 is shown in Figure 15. These buses do not have bicycle racks and are not bicycle accessible. The vehicles will be replaced in 2017 with new low-floor models that will also be equipped with bike racks. Route 77 began operation on April 25, 2016 as a one-year Community Transportation Pilot Project, funded by a MTO grant, with nonfinancial participation of Township of Wilmot, Community Care Concepts, Wilmot Family Resource Centre and Kiwanis Transit. The service is operated by Voyageur Transportation under contract with the Regional Municipality of Waterloo. Figure 15: Vehicle used for Route Regional Council approved the continuation of 77 Wilmot. the route as part of regular GRT operations during the 2017 Budget process. Additional MTO funding was secured to allow a modest expansion of service in Based on preliminary analysis of the service, ridership is estimated at about 80 to Page 60 of 83

61 customers per day, or about 10 to 11 customers per hour. Along with monitoring the ridership levels, a survey of riders on the service was conducted on board the vehicle to help determine how effective the service is at meeting the needs of the township residents. Working with the collaborating agencies, residents that have not been served by the new service were also consulted to determine what changes would be effective. Staff continue to have discussions with Township staff and elected officials on potential service delivery options that would connect township communities into the conventional regional transit network. Potential implementation of additional future services to Townships is subject to Township and Regional approvals. 5.0 Recommendations 1. That an alternative service delivery pilot be implemented in 2017 to serve one or more identified seniors facility that is currently beyond the walk distance standard. 2. That opportunities to retrofit sidewalks, pedestrian and roadway links that improve access to transit be evaluated, and funds be requested in future capital budgets. 3. That staff continue to work with Regional and municipal planners to ensure future development is designed to be in close proximity, and oriented towards existing and planned transit routes. 4. That staff continue to have discussions with Township staff and elected officials on potential service delivery options that would connect Township communities into the conventional regional transit network Page 61 of 83

62 Appendix B: GANTT Chart ION Integration Task List Page 62 of 83

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64 Appendix C: Example University Of Waterloo ION Station Profile Page 64 of 83

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