BOARD OF SUPERVISORS 2018 TRANSIT SUMMIT INFORMATION ITEM Date of Meeting: June 25, 2018 #I-3 SUBJECT: ELECTION DISTRICT(S): STAFF CONTACTS: Dulles North Transit Center Parking Alternatives for Metrorail Riders Broad Run Scott Gross, Transportation and Capital Infrastructure Joe Kroboth, III, Transportation and Capital Infrastructure PURPOSE: To brief the Board of Supervisors (Board) on a study completed regarding the Dulles North Transit Center (DNTC, or Center) that evaluated alternatives to either preclude or discourage future Metrorail riders from parking at the Center at no cost and accessing Metrorail. BACKGROUND: The DNTC opened for operation in 1998 as the Western Regional Park and Ride Lot. It is located adjacent to the Dulles Greenway and Route 606 (Old Ox Road), north of Dulles International Airport in eastern Loudoun County. The land on which the DNTC is located has been leased to the Metropolitan Washington Airports Authority (WMAA) by the United States Department of Transportation for an 80-year term 1. MWAA, in turn, executed a deed of easement agreement with the Commonwealth of Virginia for the parcel s use as the Western Regional Park and Ride Lot 2. This lot was subsequently renamed the DNTC. The lot is currently operated and maintained by the Virginia Department of Transportation (VDOT), and was constructed by VDOT at a cost of $1,187,500 using a Federal Transit Administration (FTA) grant which Loudoun County provided a 20 percent match of $237,500. The DNTC provides 750 free parking spaces for use by Loudoun County Transit bus riders and individual rideshare users. The primary access to the lot is through the intersection of Moran Road and Lockridge Road. There is a secondary access drive from Lockridge Road at the northwest corner of the lot. There are four restricted-access covered bus bays and several auxiliary uncovered bays in the northeast portion of the lot. 1 Lease of the MWAA between the United States of America acting by and through the Secretary of Transportation and the MWAA, March 2, 1987. 2 Deed of Easement to the Commonwealth of Virginia for the Western Regional Park and Ride Facility and Relocated Routes 606, 634, and 789, July 14, 2000.
Item # I - 3: Dulles North Transit Center Board of Supervisors Transit Summit June 25, 2018 Page 2 Loudoun County Transit and Commuter Services (TCS) operates commuter buses from the DNTC with 19 weekday morning departures to Crystal City, Rosslyn, the Pentagon, and multiple destinations in Washington, D.C. An average of approximately 670 riders per weekday have been boarding TCS buses at the DNTC since January 2016. The DNTC parking space utilization ranged between 80-95 percent of capacity during this period. Attachment 1 shows the monthly utilization since July 2015 through April 2018. DISCUSSION: A Dulles North Transit Center: Parking Operations Study was performed for Loudoun County Department of Transportation and Capital Infrastructure (DTCI) by WSP/ Parsons Brinkerhoff. The purpose of the study (Attachment 2) was to evaluate DNTC parking alternatives to address conditions that may occur once the Loudoun Gateway Metrorail Station opens for service, including an evaluation of methods that would discourage or preclude parking by Metrorail users at the DNTC. There is currently no safe improved pedestrian route between the DNTC and the Loudoun Gateway Planned Parking Garage. Stakeholder Outreach: A critical component of this study was a proactive stakeholder outreach effort that included contacts and interaction with VDOT, MWAA, Washington Metropolitan Area Transit Authority (WMATA) and Fairfax County. The purposes of this outreach effort were to gain insight into potential DNTC operational alternatives, understand the institutional policies and procedures currently in place, obtain information on potential parking control technologies, and gain an understanding of processes and issues potentially associated with implementation of the identified alternatives. Initial outreach included a meeting with VDOT and MWAA, which was followed by a series of contacts with the other stakeholder agencies. Information obtained through these outreach efforts is summarized as follows: VDOT does not charge for parking at any of their park and ride lots in order to encourage ridesharing. Charging for parking is precluded by the Virginia Code and enabling legislation would be required to change the Code to allow for VDOT to charge for parking. The Commonwealth Transportation Board would need to approve charging for parking at VDOT lots should the Code be changed to allow it. A parking lot which received federal funding is only allowed to collect fees at a level to recoup operations and maintenance costs. The current easement agreement for the DNTC between VDOT and MWAA cannot be directly assigned to Loudoun County. A new agreement between Loudoun County, VDOT, and MWAA would have to be negotiated and executed. If Loudoun County were to take over the DNTC, Federal Transit Administration approval will likely be needed for the County to charge for parking. MWAA would be open to an agreement whereby charging for parking was allowed.
Item # I - 3: Dulles North Transit Center Board of Supervisors Transit Summit June 25, 2018 Page 3 VDOT would not want to lose the ability of carpools to use the DNTC for free. VDOT would not charge for Metrorail overflow parking at the DNTC under current policies and legislation. WMATA installs and operates the gate-control technology at the Wiehle/Reston East Metrorail Station and only charges Fairfax County a small administrative fee to cover the service fees associated with customer credit card use. Study Alternatives: The study resulted in a set of five alternatives that were developed and evaluated based on stakeholder inputs and information assembled from the outreach effort. The alternatives generally reflect an increasing level of effort in terms of resources required and implementation challenges. A sixth alternative was developed as a result of DTCI staff discussions and after the study was completed. The six alternatives are as follows: Alternative 1 - No Action with Monitoring: This alternative would not introduce any changes to the current access nor impose parking restrictions and all current uses would remain in effect. Parking usage would be monitored after the opening of Phase 2 of the Metrorail Silver Line to record any adverse impacts with Metrorail riders parking to avoid paying the parking fee at the Metro Station Garage. Monitoring could be accomplished by in-person observations or video monitoring. One of the following alternatives could be selected if the situation warranted any action. Alternative 2 - Discourage Metrorail Parking at DNTC: This alternative would seek to allow continued access to the DNTC by all current users while discouraging Metrorail patrons from using the Center. As shown below, the Loudoun Gateway Metrorail station will be located approximately one-half mile from the main entrance to the DNTC. This distance is generally considered to be a walkable for rail transit users, therefore, maximizing this distance would discourage Metrorail patrons from using the DNTC. Features of this alternative include: o Adding highly-visible signage stating that parking by Loudoun Gateway Metrorail users is prohibited. o Closing the Northwest secondary access driveway. o Fencing the entire DNTC with vehicular and pedestrian access to the lot only via the existing main entrance. o Enforce Onsite lot usage. These features could be implemented incrementally with only the signage being installed initially. Should it then be determined that Metrorail users are parking in the lot and walking to the Loudoun Gateway Metrorail Station, then the secondary driveway access could be closed and fencing installed around the lot. These physical modifications, as shown below, would make the walk to the Metrorail station longer and act as a disincentive for Metrorail users to park at the DNTC. Should the problem persist, onsite personnel may be required to enforce restrictions. Alternatively, closed circuit TV cameras could be strategically positioned to monitor violations and notices could be left on vehicles not in
Item # I - 3: Dulles North Transit Center Board of Supervisors Transit Summit June 25, 2018 Page 4 compliance. Operational Considerations (Alternative 2): DNTC operations would essentially stay the same as they are today. However, should it become necessary to close the secondary access driveway, traffic operations at the main entrance should be monitored after the closure to determine if queuing becomes an operational issue. Installation of signage and other field technologies would have to be coordinated with the VDOT and the MWAA. Monitoring the entrance and activity would not require additional staffing as the TCS Staff regularly monitor activity at the park and ride facilities now in the course of business. If however, a closed circuit camera system would become necessary, there may be an impact on the operating budget for camera system maintenance and repairs, as necessary. Alternatives 3 Restrict DNTC Parking to Bus Riders Only: This alternative would limit parking to Loudoun County Transit bus riders while continuing to accommodate kiss and ride activity. Features for this alternative would include: o Positioning signs at the entrance to warn motorists that only Loudoun County Transit riders are authorized to use the lot. o Eliminating ridesharing at the DNTC, which would enable the operation of the lot to become automated using gate control technology without a need to install fencing or have onsite personnel enforcement. Alternatively, if it is desired to continue to accommodate rideshare users, a portion of the lot could be cordoned off for this use; however, a monitoring and enforcement mechanism would be needed, as described in Alternative 2. o Designating a kiss and ride area that can be accessed without entering the main lot. One option would be to combine the bus drop-off/pick-up and turnaround area and the kiss and ride area. A second option could be to locate the kiss and ride area on the west side of the main driveway entrance. The new gate control entrance would then be located adjacent to the bus station area with no access to the main lot prior to the gate. An important feature of this alternative is that lot users would not be charged for parking, but would be required to purchase bus tickets in order to access the lot. The driver of each vehicle entering the lot would pay for their bus ticket at the lot entrance gate to gain access to the lot. The gate would not open without at least one bus ticket being purchased. The driver would receive a paper receipt (ticket) to provide to the bus driver. The bus driver would then provide either an activated ticket, or some kind of token, that will enable the driver to go through the lot exit gate after the return bus trip. If a vehicle contains more than one bus rider, everyone in the vehicle could buy their tickets in one of several ways. These include at the entrance gate, at a Kiosk located at the bus
Item # I - 3: Dulles North Transit Center Board of Supervisors Transit Summit June 25, 2018 Page 5 bay, or by swiping their Smartcards on the bus. Kiss and ride activity would be accommodated in a separate area outside of the entrance gate. An advantage of having drivers purchase their tickets at the entrance gate would be that it would not be necessary to implement a system whereby bus riders pay to park and then get credited for the bus fare. This alternative would be more straightforward and stand-alone. Payment for bus tickets could be made using either Smartcards or credit cards. Operational Considerations for Alternative 3: The secondary driveway entrance would either be closed or have the same gate technology installed. In addition, an alternate parking location for rideshare users would need to be provided offsite, preferably further away from the Loudoun Gateway Metrorail station than the DNTC lot, but with convenient access to the Dulles Toll Road. Alternative 4 Implement Parking Charge for Non-Loudoun County Transit Users: This alternative would effectively allow any type of user for a parking fee. Bus riders would have their parking fees refunded, and rideshare users would pay the fee without reimbursement. Kiss and ride vehicles would have a separate area designated, similar to Alternative 3. Metrorail users would be allowed to park; however, the parking fee would be set in such a way that patrons would be incentivized to park at the Loudoun Gateway parking facility. The entry/exit gate system would be like that currently in use at the Wiehle-Reston East facility, whereby drivers receive a ticket upon entering the lot and pay the parking fee when exiting the lot. The fee would be paid using Smartcards or credit cards. Bus rider refunds would be issued through the Smartcard system or through the use of tokens provided to drivers on the return bus trip that could be used at the exit gate. Operational Considerations for Alternative 4: The secondary driveway entrance would either be closed or have the same gate technology installed. A major disadvantage of this alternative is that rideshare users would have to pay to park, with many likely diverting to an alternate free park and ride facility. Another disadvantage of this alternative is that charging a parking fee that exceeds the amount needed to cover lot operating and maintenance expenses will likely need FTA approval. The FTA provided funding assistance previously to construct the DNTC, as such, it may be necessary to obtain FTA approval prior to establishing a policy to charge for parking. One potential option to allow free use by rideshare users would be to create an enclosed designated park and ride lot area as described in Alternative 3. Given the VDOT has a policy that prohibits a charge for parking at park and ride facilities, Loudoun County would need to assume the VDOT lease from the MWAA. By doing so, the County would be responsible for all operational expenses to operate and maintain the park and ride facility. While developing the study, staff requested an expense analysis
Item # I - 3: Dulles North Transit Center Board of Supervisors Transit Summit June 25, 2018 Page 6 from the VDOT for the existing lot. Staff was provided a verbal response by VDOT that operational expenses at the lot are approximately $100,000 per year. Alternative 5 Implement Parking Charge for All DNTC Users: All DNTC users would be charged a fee regardless if they used Loudoun County Transit or not. In this case bus and rideshare users would be treated the same as Metrorail users. This alternative would provide flexibility to the County to have a system in place to charge for overflow parking demand for the Loudoun Gateway station should that be desired. The difference from Alternative 4 is that this scenario effectively envisions a future situation where the function of the DNTC shifts from a bus and rideshare use to a Metrorail patron parking use. Operational Considerations for Alternative 5: Similar to Alternative 4, this Alternative would require the County to assume operational and maintenance responsibility for the park and ride lot by assuming the VDOT lease from the MWAA. As stated above, this cost is approximately $100,000 annually. Alternative 6 Relocate the DNTC Entirely: A final Alternative for consideration, that was not envisioned or proposed by the study, is to relocate bus, carpool, and rideshare parking to a location sufficiently far enough away that the walking distance alone would discourage use by Metrorail users. ISSUES: Staff from DTCI have engaged in preliminary discussions with staff at the MWAA regarding the potential of leasing a parking lot located at the southern terminus of Pacific Boulevard (near Old Ox Road/Route 606). No details regarding the terms and conditions of a potential lease have been discussed. DTCI staff is seeking Board direction to further mature these discussions and return an action item to the Board for consideration. Assuming the Board would provide affirmative direction, staff anticipates these discussions could be completed by the close of Fiscal year 2019. Study Recommends Alternative 2 to start: As stated in the DTCI Study, the consultants recommended a phased approach starting with implementation of Alternative 2 in the near term until some of the uncertainties described within the Study and on the proceeding page of this item become clearer following the opening of the Silver Line Extension. They also point out that the implementation of Alternative 2 would not preclude the future implementation of more rigorous and impactful alternatives. As previously mentioned, Alternative 2 discourages Metro riders by posting appropriate signage and monitoring the DNTC during weekday morning peak periods. If this behavior continues, then this Alternative would including installation of a fence around the DNTC and the closure of a secondary driveway at the northwest edge of the DNTC in order to increase the walking distance to the Loudoun Gateway Metro station.
Item # I - 3: Dulles North Transit Center Board of Supervisors Transit Summit June 25, 2018 Page 7 At this juncture and if amenable to the Board, DTCI staff is inclined to pursue a path toward Alternative 6, if feasible in order to reduce any potential the conflict (and demand) entirely. A fall back alternative may be Alternative 2, or another appropriate alternative as outlined by the Study and as deliberated by the Board as part of the Transit Summit or as part of a follow-on discussion. Silver Line: The Silver Line Metrorail extension is currently under construction with service expected to start in the spring of 2020. One of the new Metrorail Stations will be the Loudoun Gateway Station, which will include a parking garage that will accommodate approximately 2,000 vehicles. Loudoun County is constructing and will be operating and maintaining this parking garage. It is envisioned that the daily parking rate for the parking garage will be approximately $7.00 3 per day. The parking garage is located approximately one-half mile away from the DNTC. The opening of the Silver Line Extension and construction of the Loudoun Gateway Station and parking garage has the potential to change the current dynamics of commuter use of the DNTC. The proximity between the two facilities could potentially attract Metrorail riders to park at the DNTC in order to avoid paying the parking fee at the garage. This could lead to adverse impacts as competition to park at the DNTC could reduce the spaces available to bus riders and carpool/vanpool participants. In addition, the Loudoun Gateway parking garage could experience lost parking fee revenue, which could jeopardize the financial schedule of the new garage. It is important to note that there are a number of uncertainties concerning what will happen once the Silver Line Extension opens, and these uncertainties will have an impact on the choice of future DNTC operational alternatives. 1. Parking Demand at the Loudoun Gateway Station: It is not known at this point in time what the parking demand levels will be at the Loudoun Gateway Station. Loudoun County s current plans are to construct an approximately 2,000 space parking garage, consistent with the recommendations of the Silver Line Environmental Impact Statement. The extent to which parking demand at the new station is less than, equal to, or greater than the parking capacity, will have a major influence on whether Metrorail riders choose to try to park at the DNTC. By way of comparison, the Wiehle/Reston East parking garage, which is at the end of the Phase 1 Silver Line Extension, is operating at approximately 75 percent capacity. 2. Parking Demand at the DNTC: It is not known how opening of the Silver Line Extension will affect Loudoun County TCS ridership at the DNTC. In addition, bus service routes and schedules will be modified in the future. For example, should demand for bus service decrease from current levels, there would be a surplus of parking capacity at the DNTC and it may not be necessary to limit parking at the DNTC to bus and rideshare users; however, there would still be a need to prevent Metrorail riders from parking for free, which would present lost revenue to the County. 3. Loudoun County Transit Service Level Changes: Apart from the potential impacts on 3 Actual daily rate to be determined at a later date, following a rate analysis currently being developed by DMB.
Item # I - 3: Dulles North Transit Center Board of Supervisors Transit Summit June 25, 2018 Page 8 bus ridership from opening of the Silver Line Extension, there is always a possibility that the Board of Supervisors may decide to reduce or eliminate premium commuter bus service. ATTACHMENTS: 1. Dulles North Transit Center Park and Ride Lot Utilization, July 2016 through April 2018. 2. Dulles North Transit Center, Parking Operations Study.
Dulles North Transit Center Park and Ride Lot Utilzation July August September October November December January February March April May June Lot Size 750 750 750 750 750 750 750 750 750 750 750 750 FY 2016 647 663 708 724 700 618 609 696 656 658 636 713 FY 2017 658 661 671 686 675 675 668 659 687 670 615 621 FY 2018 626 655 620 649 708 666 673 633 642 620 Actual vehicle counts weren't collected until December 2015 - this number represents commuter bus riders Percent Utilization FY 2016 86% 88% 94% 97% 93% 82% 81% 93% 87% 88% 85% 95% FY 2017 88% 88% 89% 91% 90% 90% 89% 88% 92% 89% 82% 83% FY 2018 83% 87% 83% 87% 94% 89% 90% 84% 86% 83% Percent change year over year FY 2017 1% 0% -5% -5% -3% 8% 8% -5% 4% 2% -3% -12% FY 2018-4% -1% -7% -5% 4% -1% 1% -3% -6% -7% Attachment 1
DULLES NORTH TRANSIT CENTER PARKING OPERATIONS STUDY Attachment 2
DULLES NORTH TRANSIT CENTER PARKING OPERATIONS STUDY TABLE OF CONTENTS EXECUTIVE SUMMARY Page i 1.0 INTRODUCTION 1 1.1 Background 1 1.2 Extension of Silver Line Metrorail Service 3 1.3 Study Purpose 5 2.0 STAKEHOLDER OUTREACH 6 3.0 PARKING OPERATIONS ALTERNATIVES 7 4.0 ALTERNATIVES EVALUATION 12 5.0 IMPLEMENTATION ISSUES 15 6.0 FINDINGS AND RECOMMENDATIONS 17 6.1 Findings 17 6.2 Recommendations 18 FIGURES Figure 1 DNTC Vicinity Map 1 Figure 2 DNTC Lot Configuration 2 Figure 3 DNTC Covered Bus Bays 2 Figure 4 DNTC Ridership and Lot Utilization 3 Figure 5 DNTC Proximity to Loudoun Gateway Metrorail Station 4 Figure 6 Alternative 2 Concept 8 Figure 7 Alternative 3 Concept 9 Figure 8 Gate Payment System at Wiehle/Reston East Garage 10 Figure 9 Evaluation Summary 14 APPENDICES A Lease of the Metropolitan Washington Airports between the United States of America acting by and through The Secretary of Transportation and the Metropolitan Washington Airports Authority, March 2, 1987.
DULLES NORTH TRANSIT CENTER PARKING OPERATIONS STUDY B C D Deed of Easement to the Commonwealth of Virginia for the Western Regional Park and Ride Facility and Relocated Routes 606, 634 and 789, July 14, 2000. Public Safety/Transportation Committee Report: Selection of Site for the Western Regional Park and Ride Lot, Board of Supervisors Action Item, September 18, 1996. Public Safety/Transportation Committee Report: Western Regional Park and Ride Lot Preliminary Financial Plan, Board of Supervisors Action Item, October 16, 1996. E Summary of Loudoun County Meeting with VDOT and MWAA, September 21, 2016.
DULLES NORTH TRANSIT CENTER PARKING OPERATIONS STUDY EXECUTIVE SUMMARY The Loudoun Gateway Metrorail Station is one of three new Metrorail Stations under construction in Loudoun County with Phase 2 of the Silver Line. The station construction will include a 2,000 space parking garage for Metrorail riders. The capital construction, operations and maintenance costs will be borne by Loudoun County. A fee for the parking has yet to be established; however, it is expected to range between $4.85, the amount charged at existing Metrorail station parking facilities, to $7.00 or greater to cover the capital financing of the garage. Within ½ mile of the Loudoun Gateway Metrorail Station is the Dulles North Transit Center (DNTC). This facility serves the County s Loudoun County Transit commuter bus service. It also serves as a staging area for carpools and ridesharing. The DNTC provides 750 parking spaces with no fees assessed. Concern has been expressed that competition for these spaces would occur with an influx of Metrorail riders choosing to avoid the parking fees at the Loudoun Gateway Metrorail Station garage. This possibility would have adverse impacts on both facilities. The Loudoun County Department of Transportation and Capital Infrastructure commissioned a study to identify several alternatives to restrict parking at the DNTC to its intended purpose. Early in the study effort it became clear that multiple stakeholder groups would potentially have a role in deciding the implementation of restrictions at the DNTC. Numerous government agencies, including the Federal Aviation Administration (FAA), the Federal Transit Administration (FTA), the Metropolitan Washington Airports Authority (MWAA) and the Virginia Department of Transportation (VDOT) would need to play a role given the terms of existing inter-agency agreements. Loudoun County could not act unilaterally and impose parking restrictions at the DNTC without receiving the approval of these agencies. The limitations imposed by the multiple oversight agencies were not the only challenges to identifying potential parking restriction alternatives at the DNTC. The study team could not ascertain the reliability or the degree to which the problem might be exhibited. Other dynamics related solely to the DNTC also presented additional challenges to forecasting the future parking needs at the facility. Current public transportation utilization is experiencing a downward trend which could offset the competition for parking at the DNTC by Metrorail riders. In addition, major policy changes could significantly change bus operations in Loudoun County with the opening of the Silver Line. The indeterminate outcome of these factors requires greater flexibility in choosing a parking operations alternative for the DNTC. In spite of these uncertainties, the study identified several alternatives to restrict and control parking at the DNTC. These were developed with the idea of implementing the parking restriction(s) in a staged progression to adapt to the changing conditions. Greater stakeholder involvement will be needed should a progression of parking restriction measures be needed. The study recommends going slowly, implementing the minimally acceptable restrictions initially and ramping up the imposed restrictions as conditions warrant. This study report provides greater detail to support this recommendation. i
DULLES NORTH TRANSIT CENTER PARKING OPERATIONS STUDY 1.0 INTRODUCTION 1.1 Background The Dulles North Transit Center (DNTC) opened for operation in 1998 as the Western Regional Park and Ride Lot. As shown in Figure 1, it is located adjacent to the Dulles Greenway and Route 606 interchange, north of Dulles International Airport in eastern Loudoun County. Figure 1 DNTC Vicinity Map The land on which it is located has been leased to the Metropolitan Washington Airports Authority (MWAA) by the United States Department of Transportation for an 80-year term. 1 MWAA, in turn, executed a deed of easement agreement with the Commonwealth of Virginia for this parcel s use as the Western Regional Park and Ride Lot. 2 This lot was subsequently renamed as the DNTC. The lot is currently operated and maintained by the Virginia Department of Transportation (VDOT), and was constructed by VDOT using a $950,000 FTA/Wolf Initiative grant coupled with a 20% Loudoun County matching contribution of $237,500. The DNTC provides 750 free parking spaces for use by Loudoun County Transit bus riders and individual rideshare users. As shown in Figure 2, primary access to the lot is through the 1 Lease of the Metropolitan Washington Airports between the United States of America acting by and through The Secretary of Transportation and the Metropolitan Washington Airports Authority, March 2, 1987. 2 Deed of Easement to the Commonwealth of Virginia for the Western Regional Park and Ride Facility and Relocated Routes 606, 634 and 789, July 14, 2000. 1
DULLES NORTH TRANSIT CENTER PARKING OPERATIONS STUDY intersection Moran Road and Lockridge Road. There is a secondary access drive from Lockridge Road at the northwest corner of the lot. Figure 2 DNTC Lot Configuration There are four covered bus bays and several auxiliary uncovered bays in the northeast portion of the lot that is restricted to buses only, as shown in Figure 3. Figure 3 DNTC Covered Bus Bays 2
DULLES NORTH TRANSIT CENTER PARKING OPERATIONS STUDY Loudoun County Transit (LCT) operates commuter buses from the DNTC with 19 weekday morning departures to Crystal City, Rosslyn, the Pentagon and multiple destinations in Washington, D.C. An average of approximately 670 riders per weekday have been boarding LTC buses at the DNTC since July 2015. DNTC parking space utilization has been ranging between 80-95% of capacity. Figure 4 shows a summary of LCT ridership and lot utilization over the past year and a half. Gaps in the orange lot utilization line represent periods where this data was not available. Figure 4 DNTC Ridership and Lot Utilization An examination of this data shows that LCT boardings generally exceed the number of cars parked in the lot, which indicates that bus riders are the predominant users of the lot. This was confirmed by onsite observations. This data also shows that there is seasonal variability in use of the lot. 1.2 Extension of Silver Line Metrorail Service The Silver Line Metrorail extension is currently under construction with service expected to start in spring 2020. One of the new stations will be the Loudoun Gateway station, which will include a parking garage that will accommodate approximately 2,000 vehicles. Loudoun County is financing, constructing, operating and maintaining this parking garage. It is envisioned that the daily parking charge will be $7.00. As shown in Figure 5, this new parking garage will be located approximately ½ mile from the DNTC. 3
DULLES NORTH TRANSIT CENTER PARKING OPERATIONS STUDY Figure 5 DNTC Proximity to Loudoun Gateway Metrorail Station Opening of the Silver Line Extension and construction of the Loudoun Gateway station and parking garage has the potential to change the current dynamics of commuter use of the DNTC. The proximity between the two facilities could potentially attract Metrorail riders to park at the DNTC in order to avoid paying the parking fee at the garage. This could lead to adverse impacts as competition to park at the DNTC could reduce the spaces available to bus riders and carpool/vanpool participants, which could negatively impact bus ridership and rideshare activities. In addition, the Loudoun Gateway garage could experience lost parking fee revenue, which could jeopardize the financial schedule of the new garage. It is important to note that there are a number of uncertainties concerning what will happen once the Silver Line Extension opens, and these uncertainties will have an impact on the choice of future DNTC operational alternatives. These uncertainties include the following: Parking Demand at the Loudoun Gateway Station It is not known at this point in time what the parking demand levels will be at the Loudoun Gateway station. Loudoun County s current plans are to construct a 2,000-space parking garage at the new station, with some additional paid surface parking to be provided by MWAA. The extent to which parking demand at the new station is less than, equal to or greater than the parking capacity, will have a major influence on whether Metrorail riders choose to try to park at the DNTC. By way of comparison, the Wiehle/Reston East station parking lot, which is at the end of the Phase 1 Silver Line, is operating at approximately 75% of capacity. 4
DULLES NORTH TRANSIT CENTER PARKING OPERATIONS STUDY Parking Demand at the DNTC It is not known how opening of the Silver Line Extension will affect Loudoun County Transit ridership levels at the DNTC. In addition, bus service routes and schedules may be modified into the future. For example, should demand for bus service decrease from current levels, there would be a surplus of parking capacity at the DNTC and it may not be necessary to limit parking at the DNTC to bus and rideshare users; however, there would still be a need to prevent Loudoun Gateway Metrorail riders from parking for free, which would represent lost revenue to the County. Future of Loudoun County Transit Apart from the potential impacts on bus ridership from opening of the Silver Line Extension, there is always a possibility that the Board of Supervisors may decide to eliminate the subsidy for LCT, which could potentially result in a significant scale-back or elimination of LCT service. 1.3 Study Purpose The purpose of this study was to evaluate DNTC parking operational alternatives to address conditions that may occur once the Loudoun Gateway Metrorail station opens for service, including an evaluation of methods that would discourage or preclude parking by Loudoun Gateway Metrorail users at the DNTC. 5
DULLES NORTH TRANSIT CENTER PARKING OPERATIONS STUDY 2.0 STAKEHOLDER OUTREACH A critical component of this study was a proactive stakeholder outreach effort that included contacts and interaction with the Virginia Department of Transportation (VDOT), Metropolitan Washington Airports Authority (MWAA), Washington Metropolitan Area Transit Authority (WMATA) and Fairfax County. The purposes of this outreach effort were to gain insight into potential DNTC operational alternatives, understand the institutional policies and procedures currently in place, obtain information on potential parking control technologies and gain an understanding of processes and issues potentially associated with implementation of the identified alternatives. Initial outreach included a meeting with VDOT and MWAA, which was followed by a series of contacts with other stakeholder agencies. A summary of the VDOT/MWAA meeting is provided in Appendix E. Information obtained through these outreach efforts informed development of the alternatives and identification of implementation considerations. A summary of the key outreach findings included the following: VDOT does not charge for parking at any of their park and ride lots in order to encourage ridesharing. Charging for parking is precluded by the Virginia Code and enabling legislation may be required to change the Code to allow for charging for parking. The Policy Commission (Commonwealth Transportation Board) would need to approve charging for parking at VDOT lots should the Code be changed to allow it. A parking lot having received federal funding is only allowed to collect fees at a level to recoup operations and maintenance costs. The current easement agreement for the DNTC between VDOT and MWAA cannot be directly assigned to Loudoun County. A new agreement between Loudoun County, VDOT and MWAA would have to be negotiated and executed. If Loudoun County were to take over the DNTC, FTA approval will likely be needed for the County to charge for parking. MWAA would be open to an agreement whereby charging for parking was allowed. VDOT would not want to lose the ability of carpools to use the DNTC for free. VDOT would not charge for Metrorail overflow parking at the DNTC under current policies and legislation. WMATA installs and operates the gate-control technology at the Wiehle/Reston East Metrorail station and only charges Fairfax County a small administrative fee to cover the service fees associated with customer credit card use. 6
DULLES NORTH TRANSIT CENTER PARKING OPERATIONS STUDY 3.0 PARKING OPERATIONS ALTERNATIVES A set of five alternatives was developed and evaluated based on stakeholder inputs and information gleaned from the outreach effort. The alternatives generally reflect an increasing level of effort in terms of resources required and implementation challenges. The five alternatives included: Alternative 1: No Action with Monitoring Alternative 2: Discourage Metrorail Parking at DNTC Alternative 3: Restrict DNTC Parking to Bus Riders Only Alternative 4: Implement Parking Charge for Non-Loudoun County Transit Users Alternative 5: Implement Parking Charge for All DNTC Users Alternative 1: No Action with Monitoring This alternative would not introduce any changes to the current access and impose no parking restrictions. All current uses would remain in effect. Parking usage would be monitored after the opening of Phase 2 of the Metrorail Silver Line to record any adverse impacts with Metrorail riders parking to avoid paying the parking fee at the Loudoun Gateway Station garage. This monitoring could be accomplished by either in-person observations or video monitoring. One of the following alternatives could be selected if the situation warranted any action. Alternative 2: Discourage Metrorail Parking at DNTC This alternative would seek to allow continued access by all current users while discouraging Metrorail patrons from using the DNTC. The Loudoun Gateway Metrorail station will be located approximately ½ mile from the main driveway entrance to the DNTC. Up to one-half mile is generally considered to be a walkable distance for rail transit users, so there will be a need to maximize this distance to discourage Metrorail patrons from using the DNTC. Features of this alternative included the following: Highly-visible signage is added stating that parking by Loudoun Gateway Metrorail users is prohibited. An example of the signage VDOT installed at their Wiehle/Reston East lot is shown below. Northwest secondary access driveway is closed. Entire DNTC is fenced with vehicular and pedestrian access to the lot only via the existing main entrance. Onsite lot usage enforcement. These features could be implemented incrementally with only the signage being installed initially. Should it then be determined that Metrorail users are parking in the lot and walking to the Loudoun Gateway Metrorail Station, then the secondary driveway access could be closed and fencing 7
DULLES NORTH TRANSIT CENTER PARKING OPERATIONS STUDY installed around the lot. These physical modifications, as shown below, would make the walk to the Metrorail station longer and act as a disincentive for Metrorail users to park at the DNTC. Figure 6 Alternative 2 Concept Should the problem persist, onsite personnel could be provided to enforce the restriction by watching for people that park at the DNTC and attempt to walk out of the main entrance. Alternatively, closed circuit TV cameras could be strategically positioned to monitor violations. Warning messages could be placed on windshields or mailed to violators, provided the Virginia Department of Motor Vehicles would produce the owner contact information. Operational Considerations DNTC operations would essentially stay the same as they are today. However, should it become necessary to close the secondary access driveway, traffic operations at the main entrance should be monitored after the closure to determine if queuing becomes an issue. Installation of the signs and fencing would have to be coordinated with VDOT and MWAA. Alternative 3: Restrict DNTC Parking to Bus Riders Only This alternative would limit parking to Loudoun County Transit bus riders only while continuing to accommodate kiss and ride activity. Signs would be positioned at the entrance to warn motorists that only Loudoun County Transit riders could use the lot. Elimination of ridesharing at the DNTC would enable operation of the lot to become automated, by using gate control technology, without a need to install fencing or have onsite personnel enforcement. 8
DULLES NORTH TRANSIT CENTER PARKING OPERATIONS STUDY Alternatively, if it is desired to continue to accommodate rideshare users, a portion of the lot could be cordoned off for this use. However, there would then need to be some sort of monitoring and enforcement mechanism in place, such as described for Alternative 2. A kiss and ride area would need to be designated that can be accessed without entering the main lot. One option would be to combine the bus drop-off/pick-up and turnaround area and the kiss and ride area. A second option could be to locate the kiss and ride area on the west side of the main driveway entrance. The new gate control entrance would then be located adjacent to the bus station area with no access to the main lot prior to the gate. Figure 7 Alternative 3 Concept An important feature of this alternative is that lot users would not be charged for parking per se, but rather would be purchasing bus tickets in order to access the lot. The driver of each vehicle entering the lot would pay for their bus ticket at the lot entrance gate to gain access to the lot. The gate would not open without at least one bus ticket being purchased. The driver would receive a paper receipt (ticket) to provide to the bus driver. The bus driver would then provide either an activated ticket, or token, that will enable the driver to go through the lot exit gate after the return bus trip. If a vehicle contains more than one bus rider, everyone in the vehicle could buy their tickets in one of several ways. Either at the entrance gate, a Kiosk located at the bus bay or by swiping their Smartcards on the bus as is currently the operation. Kiss and ride activity would be 9
DULLES NORTH TRANSIT CENTER PARKING OPERATIONS STUDY accommodated in a separate area outside of the entrance gate, with bus riders purchasing their tickets at a kiosk upon boarding the bus after being dropped off. An advantage of having drivers purchase their tickets at the entrance gate would be that it would not be necessary to implement a system whereby bus riders pay to park, then get credited for the bus fare. This alternative would be more straightforward and stand-alone. Payment for bus tickets could be made using either Smartcards or credit cards. Operational Considerations The secondary driveway entrance would either be closed or have the same gate technology installed. In addition, an alternate parking location for rideshare users would need to be provided offsite, preferably further away from the Loudoun Gateway Metrorail station than the DNTC lot, but with convenient access to the Dulles Toll Road. Alternative 4: Implement Parking Charge for Non-Loudoun County Transit Users This alternative would effectively allow all types of users to park at the DNTC for a parking fee. Bus riders would have their parking fees refunded to them. Rideshare users would pay the fee without reimbursement. Kiss and ride vehicles would have a separate area designated for kiss and ride use similar to Alternative 3. Loudoun Gateway Metrorail users would be allowed to park for the fee; however, the parking fee would be set such that it would be less expensive to park at the Loudoun Gateway parking facility. The entry/exit gate system would be like that currently in use at the Wiehle/Reston East station facility whereby drivers receive a ticket upon entering the lot and pay the parking fee when exiting the lot. The fee would be paid using Smartcards or credit cards with the bus rider refunds being made through the Smartcard system or through the use of tokens provided to drivers on the return bus trip that could be used at the exit gate. Figure 8 Gate Payment System at Wiehle/Reston East Garage 10
DULLES NORTH TRANSIT CENTER PARKING OPERATIONS STUDY Operational Considerations The secondary driveway entrance would either be closed or have the same gate technology installed. A major disadvantage of this alternative is that rideshare users would have to pay to park, with many of them likely diverting to an alternate free park and ride facility. Another disadvantage of this alternative is that charging a parking fee that exceeds the amount needed to cover lot operating and maintenance expenses will likely need FTA approval. One potential option to allow free use by rideshare users would be to create an enclosed designated park and ride lot area as described in Alternative 3. Alterative 5: Implement Parking Charge for All DNTC Users All DNTC users would be charged a fee regardless if they used Loudoun County Transit or not. In this case bus and rideshare users would be treated the same as Metrorail users. This alternative would provide flexibility to the County to have a system in place to charge for overflow parking demand for the Loudoun Gateway station should that be desired. The difference from Alternative 4 is that this alternative effectively envisions a future situation where the function of the DNTC shifts from a bus and rideshare use to a Metrorail patron parking use. 11
DULLES NORTH TRANSIT CENTER PARKING OPERATIONS STUDY 4.0 ALTERNATIVES EVALUATION An evaluation of the five alternatives was completed using factors that relate to the objectives of Loudoun County: Effectiveness Accommodation of Rideshare Relative Cost to County Future Flexibility Ease of Implementation Effectiveness In order to be effective in the context of the County s objectives, an alternative will need to prevent Metrorail users from parking at the DNTC for free. Alternative 1 would be the least effective alternative, since it does not include any measures to discourage or prevent Metrorail users from parking at the DNTC and walking to the Loudoun Gateway station. Alternative 2 would employ signage and fencing to discourage Metrorail users from parking at the DNTC, but no gates or charging mechanisms would be employed. As such, it would likely be more effective than Alternative 1, but not as effective as the remaining alternatives. Alternatives 3 through 5 would be the most effective alternatives since all include gatecontrolled technology coupled with some form of payment to park at the lot. Accommodation of Rideshare Alternatives 1 and 2 accommodate rideshare users free of charge and are rated highly against this factor. Alternatives 3 and 4 each have the option to accommodate free ridesharing activities; however, a separate rideshare portion of the lot would need to be established and monitored to enforce compliance. Although these alternatives are rated as high for this factor, the need for cordoning and monitoring/enforcement works against them in terms of ease of implementation. Alternative 5 is rated lowest against this factor since rideshare users would need to pay to park. Relative Cost to County This factor relates to the relative cost of implementation and operation for the County. Specific actual costs to the County for all alternatives are not possible to estimate at this time given uncertainties with respect to the actual technologies that may be used for Alternatives 3, 4 and 5. For those alternatives that would entail transfer of the lot easement to Loudoun County, VDOT has estimated an annual operating and maintenance cost of $60,000. 12
DULLES NORTH TRANSIT CENTER PARKING OPERATIONS STUDY Alternative 1 would not have any cost to the County, other than potential monitoring costs, since operations and maintenance responsibilities would remain with VDOT. Alternative 2 would potentially entail costs associated with adding signage, installing a fence and monitoring activities. However, it is not known if the County would bear these costs or if VDOT would. As such, these alternatives are rated highly in terms of relative cost to the County since County costs would be non-existent or relatively low. Alternatives 3, 4 and 5 would all entail installation and operation of some sort of gate-control and payment technology. The bus ticket purchase technology would likely entail purchase and installation of new equipment by the County and is therefore rated low against this factor. If Alternatives 4 or 5 are chosen, WMATA s equipment could be used at a low cost to the County. However, if the County chose to use a different technology, then costs would be higher. In addition, Alternatives 3, 4 and 5 all would entail the County assuming the easement and therefore the operations and maintenance costs. Future Flexibility Given that it is difficult to know at this point how the usage dynamics of the DNTC may or may not change once the Silver Line Extension opens, alternatives that allow for some flexibility in future operations are rated highest. For example, it is possible that once the Silver Line opens the DNTC may evolve from a bus and ridesharing function to use as an overflow parking facility for the Loudoun Gateway station. Accordingly, Alternatives 4 and 5, which will employ gatecontrolled technology allowing charging for parking, have the highest rating for this factor. Alternatives 1 and 2 are rated in the medium range since any measures implemented under them would not preclude addition of gate-controlled technology. Alternative 3 is rated lowest since the gate-control technology to sell bus tickets would need to be replaced if a parking charge system needed to be implemented. Ease of Implementation Ease of implementation relates to the processes and challenges that will be encountered by implementing each of the alternatives. Alternative 1 will be the easiest to implement since it does not involve making any changes to existing lot operations and VDOT would continue to be the owner. Alternative 2 would also be relatively easy to implement; however, it would need to be determined whether VDOT would be willing to add the signage and fencing, in addition to monitoring the lot. Alternatively, there may be a possibility that Loudoun County could share in that effort and expense, or take over ownership of the easement agreement altogether. Alternatives 3, 4 and 5 will all likely require a transfer of the easement to Loudoun County in addition to the purchase, installation and operation of the gate-control technologies. Alternative 3 will probably not require FTA approval or enabling legislation since people will not be charged to park at the lot, as they would be under Alternatives 4 and 5. 13
DULLES NORTH TRANSIT CENTER PARKING OPERATIONS STUDY Figure 9 presents a summary of the features and evaluation factor ratings for each alternative. Alternative 2 is the only alternative that does not receive a low rating against any of the evaluation factors. Figure 9 Evaluation Summary 14
DULLES NORTH TRANSIT CENTER PARKING OPERATIONS STUDY 5.0 IMPLEMENTATION ISSUES How the DNTC functions now and in the future will be predicated on future public transportation needs and policy decisions to serve those needs. The opening of Phase 2 of the Silver Line will significantly change the transportation program in Loudoun County. Consideration of the following issues will be helpful in selecting an alternative for the control and regulation of the DNTC in the future. Utilization of the DNTC Initially, the demand for parking exceeded the DNTC s capacity. This resulted in illegal parking on the grass shoulders and along the roadway. The current utilization of the parking is approximately 85% with 90 open spaces available on average each day. The demand was slightly reduced with the opening of Phase 1 of the Silver Line. This declining trend may continue with the opening of the Phase 2 Silver Line Extension. Parking Demand at the Loudoun Gateway Garage The Loudoun Gateway garage will accommodate approximately 2,000 vehicles. The parking fee will likely be $7.00 per day. The parking fee is charged weekdays between 9:30 AM and 1:00 AM at other Metrorail stations. The experience at the Wiehle/Reston East Station parking garage suggests that a peak demand will occur with the opening of Phase 2, but with a subsequent decrease over time. In addition, the Wiehle/Reston East station is at the end of the line for Phase 1 and therefore subject to greater parking demands than in-line stations. The parking demands at the Loudoun Gateway Station could therefore be less. Utilization of the Commuter Bus Service The LCT bus service operates 19 runs in the weekday AM peak period from the DNTC with 26 runs on the return in the PM peak period. Ridership has been fairly constant over the past year; however, there had been some decline with the opening of Phase 1 of the Silver Line. A downward trend in ridership could reappear with the opening of Phase 2 of the Silver Line. Farebox collections cover approximately 80% of the operational cost, with the County subsidizing the difference. Declining LCT farebox revenue could prove to be a financial hardship for the County. Adoption of a New Transit Plan with Phase 2 of the Silver Line The opening of Phase 2 of the Silver Line Stations will warrant feeder local bus service. This may necessitate a new orientation of the County Transportation Plan and associated Transit Development Plan. Board of Supervisor Action to Discontinue LCT Bus Service The need to provide both commuter bus and Metrorail choices for commuters to the District of Columbia is a decision the County will have to make with the opening of Phase 2 of the Silver 15
DULLES NORTH TRANSIT CENTER PARKING OPERATIONS STUDY Line. In the event the County chooses to opt out of the commuter bus operation, the need and use of the DNTC will change. The DNTC could provide additional Loudoun Gateway Station parking. It is possible that the garage alone would be inadequate to meet the parking needs required with the opening of Phase 2 of the Silver Line. Previous studies to analyze this need have been inconclusive. Each of the above are interrelated and can influence the other to reach a conclusion. It is difficult to say which of the alternatives is preferred to control and regulate the parking at the DNTC since its function may change in the future. Presently it serves to provide parking for the Loudoun County Transit bus service. In the future it could serve to provide parking for the Loudoun Gateway Metrorail Station. The policy decisions made prior to the opening of Phase 2 of the Silver Line will establish the direction leading to a preferred alternative parking solution at the DNTC. 16
DULLES NORTH TRANSIT CENTER PARKING OPERATIONS STUDY 6.0 FINDINGS AND RECOMMENDATIONS 6.1 Findings The DNTC is a well-used facility that caters primarily to LCT bus riders, with some rideshare participants using it as a staging area. The lot operates at approximately 85% of its capacity on typical weekdays and also attracts kiss and ride users. LCT operates 19 runs in the weekday AM peak period from the DNTC with 26 runs on the return in the PM peak period. Average daily ridership at the DNTC is 670 persons. VDOT constructed and now operates and maintains the DNTC through an easement agreement with MWAA. Construction funding was obtained through a FTA grant and Loudoun County matching funding. VDOT s annual operating and maintenance costs for the DNTC are approximately $60,000. VDOT currently does not charge for parking at any of its park and ride lot facilities. This is keeping with their policy to encourage ridesharing and transit usage. The Phase 2 Silver Line Extension is scheduled to open in spring 2020. The new Loudoun Gateway station will be located approximately ½ mile from the DNTC. Loudoun County is planning to construct and operate a 2,000-space parking garage for use by Metrorail users. The County plans to charge $7.00 per day to park at this new garage. Given the close proximity of this new garage to the DNTC, the County initiated this study to evaluate a range of alternatives that could be implemented to discourage or prevent Metrorail users from parking for free at the DNTC and then walking to the Loudoun Gateway station. Through a stakeholder outreach effort it was learned that since VDOT is unable under current Code to charge for parking, even if they were so inclined, any alternative that included charging for parking would not be possible under the current situation. One option would be for Loudoun County to assume the easement for the DNTC; however, that would necessitate execution of a new easement agreement between MWAA, Loudoun County and VDOT. In addition, since federal grant funds were used for construction, it is likely that the County would need to reach an agreement with the FTA to be able to charge for parking in excess of the amount needed to cover operating and maintenance costs. Five alternatives ranging in complexity and impact, from a no build alternative to an alternative requiring all users to pay for parking, were evaluated. This evaluation was made more challenging by the fact that there are a number of uncertainties going forward, including level of parking demand for the new Loudoun Gateway parking garage, effects of the Silver Line Extension on LCT ridership and operations, and the overall future of LCT service. In addition, depending on the alternative selected there may be significant implementation challenges given the multiple stakeholders involved and potential need for state enabling legislation and\or new agreements with MWAA, VDOT and even potentially FTA. 17
DULLES NORTH TRANSIT CENTER PARKING OPERATIONS STUDY 6.2 Recommendations The study team recommends a phased approach starting with implementation of Alternative 2 in the near term until some of the uncertainties described above become clearer following opening of the Silver Line Extension. Implementation of Alternative 2 would not preclude a future implementation of more rigorous and impactful alternatives. Implementation of Alternative 2 would entail the following actions: Add signage prohibiting Loudoun Gateway Station Metrorail users from parking at the DNTC. Monitor the DNTC during weekday morning peak periods to ascertain if people are parking at the DNTC and then walking to the Loudoun Gateway station. If people are doing this, then install a fence around the DNTC and close the secondary driveway at the northwest edge of the DNTC. This would serve to discourage people from parking and walking since it would effectively increase the walking distance to the Loudoun Gateway station. It would also make monitoring and enforcement easier. It will likely take some time following opening of the Silver Line Extension before the transit system dynamics of this new service become settled. For example, a number of things could occur: Demand for parking at Loudoun Gateway could exceed the capacity of the 2,000 space garage. Demand for parking at Loudoun Gateway may not reach expectations. LCT bus ridership at the DNTC could decline. LCT routes may be changed to more of a feeder operation or have service cutbacks. Demand for parking at the DNTC may decline significantly and alternative uses for the lot may be pursued by VDOT or MWAA. Depending on how this situation plays out, the County s vision and plans for meeting the needs of its residents will evolve. For example, should additional Metrorail parking capacity be required for Loudoun Gateway, the County may initiate the process to transfer the DNTC easement to Loudoun County to enable the DNTC to be used for overflow Metrorail parking. Alternatively, Metrorail parking demand may be satisfied by the Loudoun Gateway garage and the implementation of Alternative 2 is successful in discouraging Metrorail users from using the DNTC. In this case, no further action by Loudoun County may be needed and VDOT will continue to operate and maintain the DNTC. 18
APPENDIX A Lease of the Metropolitan Washington Airports between the United States of America acting by and through The Secretary of Transportation and the Metropolitan Washington Airports Authority, March 2, 1987.
APPENDIX B Deed of Easement to the Commonwealth of Virginia for the Western Regional Park and Ride Facility and Relocated Routes 606, 634 and 789, July 14, 2000.
APPENDIX C Public Safety/Transportation Committee Report: Selection of Site for the Western Regional Park and Ride Lot, Board of Supervisors Action Item, September 18, 1996.
APPENDIX D Public Safety/Transportation Committee Report: Western Regional Park and Ride Lot Preliminary Financial Plan, Board of Supervisors Action Item, October 16, 1996.